As Con

MANDATORY TRAINING FOR FEDERAL CIVIL SERVANTS ON GL. 08 – 10.

1

THE MACHINERY OF GOVERNMENT IN NIGERIA

Learning Objectives

At the end of this session, participants should be able to:

explain the meaning of the concept of Government;

Identify the different tiers of Government in operation in Nigeria;

outlines Arms of Government and discuss their functions;

discuss the functions of the Public Service as they relate to the

functions of Government.

Introduction

The topic ―Machinery of Government‖ deals with the application of

state power through the process of administering or ruling a State by a

recognized Legal Institution i.e. the Government.

Government as an institution is the instrument through which the

sovereign power of State is exercised according to some agreed norms,

laws and procedures, as contained in the Constitution or Edicts.

Government Defined

At the macro level, government can be defined as an institution of State

set up according to some definable legal provisions (e.g. Constitution or

Edict) to carry out the purposes of state. Viewed thus, government

defines the institutions of State which administer or govern the affairs of

State.

Government can also be defined as the way or manner in which a

Country is ruled. This involves the act and process of control and

administration of public policy within a political unit such as a country or

state.


2

In summary, government can mean state institutions responsible

for ruling, governing or administering a country and the manner and or

process by which these institutions do rule.

Tiers of Government

Generally, tiers of government i.e levels of government are

associated with the form of government in operation in a country. Nigeria

since 1979 has operated the presidential system of government within

the ambit of a federal state. In consonance with the federal nature of the

Nigerian state, the Nigerian constitution provides for three tiers or levels

of government, namely:-

Federal Government;

State Government; and

Local government.

The three tiers of government have specified levels of

responsibilities as stipulated in the 1979 and as amended in the 1999

Constitution. The Federal government responsibility is contained in what

is referred to as the Exclusive List. The Exclusive List itemises those

areas of national life that are to the exclusive preserve of the federal tier

of government and none other. The Exclusive list includes Declaration of

War, National Defence, Diplomatic Relations, Control over Mineral and

Petroleum Resources, policing e.t.c.

The second area of responsibilities is referred to as the Concurrent

list. This list itemizes those areas of national life that both the federal and

State government gave authority to legislate on. This area of

responsibility includes internal issues such as tertiary and secondary

education, health, road transportation, judiciary e.t.c.


3

The third list is called the Residual list which is the preserve of the

State and Local Government. This covers areas such as Land Use,

Local Taxes, Primary Healthcare, Primary Education.

One of the unique features of the presidential system is the

entrenchment of the fundamental principles of separation of powers

which presupposes that each organ of government is separate and has

its own distinctive powers. The organs are:

1. The Executive (Presidency)

2. The Legislature

3. Judiciary

The Executive

- 1999 Constitution vests executive power on President and

Commander-in-Chief of Armed Forces.

- Exercises power through National Assemblies and Ministers;

- Maintains laws and administers the country;

- Appoints Ministers;

- Delegates responsibilities;

- Determines the general direction of domestic and foreign

policies of the government of the Federation; and

- Establishes Federal Executive Bodies to aid the President in the

execution of his functions:

(a) Council of State

(b) Federal Civil Service Commission

(c) National Electoral Commission

(d) Judiciary Service Commission

(e) Defence Council

(f) National Population Commission

(g) Police Commission, etc.


4

The Legislature:

National Assembly – Senate, House of Representative.

Powers of the Assembly:

4. To make laws for the land

5. Exercise control over public funds

6. Authority to extend its life for six months, during war or when

the President considers that it is not possible to hold elections

7. Control the conduct of government businesses;

8. Ensure proper administration of the government of the

Federation of Nigeria;

9. The Senate screens all Presidential appointees; and

10. Powers to impeach the President.

**State Assembly: Functions similar to National Assembly.

The Judiciary: Composition:

(i) The Supreme Court

(ii) The Federal Court of Appeal

(iii) The Federal High Courts

(iv) The State High Courts, The Sharia Courts of Appeal

(v) The Customary Courts.

Powers:

11. The defender of the Constitution

12. Checks the excesses of the other two organs of government

13. Administers justice.

The Structure of an Organisation

The structure of any organisation is a function of many variables:

14. The size of the organisation

15. The objectives of the organisation


5

16. Its capital outlay

17. Its location

18. Its lifespan.

In general, however, Mintsberg (1979) had identified five component

parts of any fairly large organisation.

(a) The strategic apex

(b) The middle line

(c) The operating core

(d) The techno structure

(e) The supporting staff

(a) The Strategic Apex

This group consists of those in the top management of an

organisation. Such are the chief executives and other top level

managers and who, with the Board Members take vital decisions

that affect the overall management of the organisation. This group

sets targets and dictates the tone and direction of the

organisation‘s goals and objectives.

(b) The Middle Line

This is an intermediate level between the top managers and the

operating core. It is a strong link in the chain of authority from the

top to bottom. Because of their position, they assist in the

formulation of organisational policies through the ‗feedbacks‘ they

give to those at the strategic apex. They also supervise and pass


6

down decisions of the top management to the operating core. In

smaller organistions, the middle line may not exist, and if they do

at all, their role is no more than that of Supervisors.

(c) The Operating Core

This group is known as the operators of all the works and services

of an organisation. It is the heart of an organisation and the

success or failure of an organisation would depend on the proper

management of this group. There is the need for a proper

industrial harmony, better conditions of service for an organisation

to make a giant stride in its development efforts. As producers and

distributors of goods and services, their welfare is paramount in

the pursuits of good performance of their jobs.

(d) The Technostructure

Comprises the technical arm of an organisation. These are the

professionals whose main responsibility is to analyse and service

the means of production. Such workers are the engineers,

technicians, accountants and other analysts in the organisation.

(e) The Supporting Staff

This comprises such units as the Legal services, Public Relations,

Industrial Relations, Research and Development, Reception, Mail-


7

Room, Cafeteria, etc. Collectively, they facilitate the work of the

top management by cushioning the work pressure and assist in the

good image-making of the organisation.

Civil Service Structure before the 1988 Reforms Federal Civil Service Commission (appointments, promotion,

discipline)

Permanent Secretaries were chief executives and accounting

officers

Ministers were only political heads

Rampant staff movements in the administrative cadre (common

pool)

- Irregular number of Department in the Ministries

THE CIVIL SERVICE STRUCTURE AFTER THE 1988 REFORMS.

Highlights of the 1988 civil service structure included;

(a) The Horizontal Structure of the Ministries;

(b) The Vertical Structure of the Ministries; and

(c) The staff structure in the Ministries

Other features of the structure were the various Personnel Management

Committees in each Ministry viz:

19. the Management Staff Committee (M.S.C)

20. the Senior Staff Committee (S.S.C)

21. the Junior Staff Committee (J.S.C)

However, in the case of J.S.C; there were two categories. One category

was for the staff at the Headquarters, while the other was for the staff at

the local zones.


8

The Ayida Review Panel of 1994

The abolition of the 1988 Civil Service (Re-organisation) Decree

43 led to the setting up of the Ayida Review Panel. The Review Panel

was aimed at correcting the identified anomalies brought about by the

1988 Civil Service Reforms.

Salient changes which the Panel recommended that were

accepted in the ―White Paper‖ of 1997 include:

(a) Restoration of the post of the Head of Service

(b) Restoration of the post of the Permanent Secretary

(c) Restoration of the Pooling System

(d) Reduction in the size of Ministries to between 2 and 6,

depending on their roles & functions.

(e) Restoration of the functions of the Federal Civil Service

Commission

(f) etc

It is pertinent to note, however, that the Ayida Review Panel

addressed those issues that bordered on low morale in the service as

well as those that tended to lower productivity.

Since no structure is permanent, changes are only desirable where

they can bring about improvement in the service. It is only hoped that

proper implementation of the accepted provisions of the Review Panel‘s

Report would lead to improved productivity in the Nigerian Civil Service.


9

PUBLIC SERVICE

The Federal Public Service is made up of the Civil Service as has

been discussed above, as well as Parastatals and Agencies of

Government. Parastatals are semi-autonomous units of the executive

arm of government created in an attempt to enhance efficiency, speed

and effectiveness.

OBJECTIVES OF THE FEDERAL PUBLIC SERVICE

The following are some of the objectives of the Federal Public

Service of Nigeria:

(a) to initiate public policy and advice government on the

implications of policy options open to it.

(b) to execute government policy once such policy is settled by

the Cabinet or the Minister as the Political head of the

Ministry

(c) to provide continuity and serve as a reservoir of knowledge

of past government decisions and procedures

(d) to provide one of the unifying factors in a developing nation,

especially in periods of national crisis

(e) to serve as an embodiment of government in the day-to-

day life of the people and help to preserve the authority and

legitimacy of government through the daily contact of

officials of all levels with general public.

References Webster, M (2000): Collegiate Dictionary, 11th Edition

www.duhaime.org

www.answers.com/topic/governmentalfunctions

http://www.duhaime.org/


10

FUNCTIONS AND CORE VALUES OF THE NIGERIAN

PUBLIC SERVICE

Objectives:

The objectives of this module include the following:

To refresh the memory of the participants on what constitutes the

Nigerian Public Service

To know what the Nigerian Public Service does and how it does

them

To make the participants know the core values of the Nigerian

Public Service

To remind the participants of the need to imbibe the core values of

the Nigeria Public Service

To make participants know the consequences of disregarding the

Public Service core values

INTRODUCTION

WHAT IS THE NIGERIAN PUBLIC SERVICE?

The Public Service of the Federation as defined by the Federal

Constitution of the Federal Republic of Nigeria is:

The Service of the Federation in any capacity in respect of the Government of the Federation and it Includes the clerk and the staff of the National Assembly, the Judiciary, the staff of any commission established by the constitution or an act of National Assembly; staff of any educational institutions established or financed Principally by the Government the Armed Forces and staff of government owned companies or statutory agencies.


11

The Public Service is the administrative machinery of Government

for implementing polices and programmes impacting meaningfully on the

lives of the citizenry.

The Public Service is the main instrument of continuity of

administration.

The Public Service, therefore, is required to stay connected with

the people by being people-centred since it embodies the collective spirit

and aspirations of the nation to respond to the dynamics of development

challenges.

The Public Service is to be seen to deliver valuable goods and

services to all citizens irrespective of their socio-economic and political

status.

Therefore, the Nigerian Public Service is the totality of all

structures of governance, or organizations established as part of

government machinery for the delivery of services.

These include the staff of the three arms of government:

(i) National Assembly (Legislature)

(ii) Judiciary

- adjudication of law

- information seeking redress and settlement of

disputes

(iii) Executive

- executing of government policies.

These include the career staff of

- The Presidency

- The Ministries

- The Extra-Ministerial Department such as the


12

Federal Public Service Commissions

Independent National Electoral Commission

Federal Judicial Commission

Federal Character Commission

National Population Commission

Police Service commission

Public Complaints Commission

The Armed Forces/Military

Army, Navy, Air force

The Police

The Paramilitary

Custom, Immigration, Prisons.

The Parastatals

- Social service/infrastructural Agencies e.g. FERMA

- Regulatory Agencies, e.g.

National Communication Commission

- Educational Institutions e.g. Universities, Polytechnics, and

Colleges of Education

- Research Institutes e.g. NISER.

DIFFERENCE BETWEEN THE PUBLIC SERVICE AND CIVIL

SERVICE

The Public Service is usually referred to as government ―machine‖

for the delivery of the totality of services to the public. The civil service is

narrower than the Public Service in the sense that it excludes the staff of

the Judiciary, parastatals and government companies. Civil servants

are public servants but not all public servants are civil servants. The


13

Public Service is a canopy sheltering the civil service. The Government

the Armed Forces and staff of government owned companies or

statutory agencies.

WHAT IS WRONG WITH THE NIGERIAN PUBLIC SERVICE?

The Nigerian Public Service appears to have lost its glory and

seem to have fallen into decay. This decay is captured vividly by the

former President of Nigeria, Chief Olusegun Obasanjo at different fora

as can be seen by the statement below:

(i) “Public Offices are the shopping floors of government Business, Regrettably, Nigerians have for too long been feeling short-changed by the quality of public service delivery by which decisions are not made without undue outside influence, and files do not move without being pushed with inducements. Our public offices have for too long been show cases for the combined evils of inefficiency and corruption, whilst being impediments to effective implementation of government policies, Nigerians deserve better. And we will ensure they get what is better.”

(ii) “……let me state right from the outset that I strongly believe that

without an efficient, effective, dedicated, well - informed and technology - powered civil service, the goals of stability, growth and development could be easily compromised. Any dedicated and forward - looking Public Service must, at all times, identify with Service Delivery, innovation, motivation, transparency, accountability and development.”

(iii) “Service is what we offer ourselves for. And service is what

the people are entitled to expect from us. In this simple equation lies our great concern when the people feel short-changed in their expectations of the standard of service provided by government institutions. This situation has damaging effect on the amount of trust the people have in our ability to govern as their elected government. In the circumstances, we as responsible and sensitive government, are obliged to take steps to thoroughly examine what the real


14

trouble is with service delivery and determine how best we can remedy it…….we were like most Nigerians, well aware of the unpleasant manifestations of the appalling standard of service delivery in the country.”

The summary of what former President Olusegun Obasanjo said

about the Public Service of Nigeria include:

(i) Lethargic and slow in official decisions and action

(ii) Insensitive to the value of time

(iii) Irregular attendance at work

(iv) Nepotism

(v) Wasteful with government resources

(vi) Slow to change

(vii) Corrupt

(viii) Unresponsive and discourteous to the public

(ix) Unclear role definition

(x) Poor staffing occasioned by patronage and aclientelism.

(xi) Inappropriate supervision control system

(xii) Over-centralization of decision making

(xiii) Breakdown of disciplinary system

(xiv) Total disregard of code of conduct

(xv) Political, social, economic fraud

(xvi) Deceit

(xvii) Untruthful

(xviii) Insincerity

(xix) Dishonesty

(xx) Unpatriotic

UNERSTANDING OF TERMS USED IN WORK ENVIRONMENTS

1. VISION:

Vision is a short, succinct, and inspiring statement of what the

organization intends to become and to achieve at some point in the

future.


15

Visions are intentions that are broad, all – intensive and forward-

thinking.

A vision builds a model of what the organization would become in

future. e.g. ASCON Vision

“To be a World Class MDI involved with cutting edge performance

and State-of-the Art Technology”.

2. MISSION:

Mission is the purpose of the existence of an organization - It

tells what an organisation is offering to the society either as a product or

service.

A Mission statement reveals the unique operating style and

philosophy, which distinguishes the organization from other

organizations.

Mission tells who we are, what we do and what we hope to

become e.g. ASCON Mission

“To consistently provide Excellent Management Training,

Consultancy, Research and Allied Services for Performance

Improvement in all Sectors of the Economy”.

3. GOALS:

- Goals are the ends towards which efforts will be directed

- They are like mile stones in a life journey

- Goals usually stem from mission

4. OBJECTIVES:

- Objectives are descriptions of exactly what is to be done,

derived from the goals

- They are clear, specific statements of measurable tasks that will

be accomplished as steps towards reaching organizational

goals


16

5. VALUES:

- Values are the things or relationships that an organization or a

person would like to have or enjoy

- They are the things people hold dear to them.

WHAT ARE CORE VALUES?

- Core values are a statement of the framework in which an

organization accomplishes its mission

- Core values express the manner in which, both individuals and

groups in the organization pursue their mission

- Core values are the things that bind the workforce together as

one big family

- Core values of an organization are those things the members of

an organization hold which form the foundation on which they

perform their work and conduct themselves.

- Core values underlie the work people do in the organization

- Core values from the platform of interaction with one another

and the strategies employed to fulfill the organizational mission

- Core values are the basic elements of how the workforce go

about their work

- Core values are the driving forces expressed in everything,

workers of an organization do.

USEFULNESS OF CORE VALUES

Core values can be useful in many ways:

- They guide organizations and its workforce to achieve their

mission and strategic goals

- They guide and regulate the conduct of the workforce in the

discharge of

- their daily work and other important responsibilities

CORE VALUES:

- Govern personal relationships

- Guide business processes

- Clarify who we are


17

- Articulates what we stand for

- Explain why businesses behave the way they do

- Guide us on how to teach

- Inform employers of labour on how to reward hardworking,

committed and faithful workers

- Guide us in making decisions

- Bind the organization together.

CORE VALUES AND PUBLIC SERVICE

Membership of the Public Service is by choice and not by

compulsion. The public service is characterized by privileges and

obligations basically essential in the conduct of Public Affairs. By

becoming a public servant, a person assumes these obligations which

include administering laws to which his duties pertain:

(i) rendering faithful service to realize the objectives of the

government;

(ii) implementing lawful decisions;

(iii) advising political office holders, and above all;

(iv) serving the public diligently and impartially.

However, a public servant is expected to maintain a balance

between his private interests and conscience and these obligations.

The public servants participate in the governance process of the

society which requires that a public servant be responsible to the public.

The failure to observe the core values of the service by members of the

Public Service has affected:

(i) the efficiency levels of the Services

(ii) brought the public service into discredit and disrepute with the

public losing faith in their governments


18

WHAT THE PUBLIC EXPECT FROM PUBLIC SERVANTS

The public that we serve demand:

(i) a right to be informed

(ii) a right to quality service

(iii) a right to be served right and timely

(iv) a right to make choices and they are not prepared to accept

substandard service and

(v) expect the highest level of professionalism and commitment.

Unfortunately, however, the essential ethical core values instituted

by government authorities have, to a large extent, been eroded,

disregarded, or are made to be of no effect.

CORE VALUES OF THE NIGERIAN PUBLIC SERVICE

Even though all the Ministries Departments and Agencies (MDA‘s)

have their separate vision mission and core values, and rules as

required by Service Charter, the Federal Government has identified

Some core values that should be applicable to all MDA‘s.

These are:

Discipline:

- all public servants are to be well disciplined

- must operate within and obey the rules and regulations meant for

the conduct of government business

Patriotism:

- all efforts must be made to put Nigeria first, and above all other

considerations

Loyalty:

- all public servants are to be loyal to constituted authority

Honesty:

- Public Servants are to be honest in all their dealings with the


19

authority, members of the public, colleagues, and subordinates

Honesty means being someone others can rely on for accurate,

complete, and timely disclosure of Information. It involves accepting

responsibility for one‘s action

Integrity:

- Integrity is the cornerstone of the core values

- It is the quality of being honest, sincere, and

morally upright

- Integrity requires discipline, consistency and

Persistence in order to reflect the core values in

every day life

- In practice, it involves doing the right thing

- It is doing the right thing when nobody is looking

Integrity is the inner voice, the source of self-control, the basis for

trust.

WHY HONESTY MATTERS:

Honesty breeds trust and the more trust in a society, the better the

society functions

If people who have to work together trust one another, doing

business will cost less

By contrast, people who do not trust one another will end up co-

operating only under a system of formal rules and regulations,

which will be negotiated, agreed to, litigated, and enforced.

―This legal apparatus, serving as a substitute for Trust entails

―transaction cost‖ ―Trust is a social good to be provided just as much as

the air we breathe, or the water we drink. When it is damaged, the

community as a whole suffers; and when it is destroyed, Societies falter

and collapse‖.

- Sissela Bok


20

IMPORTANCE OF TRUST IN GOVERNMENT

Trust is central to legitimate democratic government, to the

formulation of public policy, and its implementation

To function, government requires trust between:

the executive and legislative branches

the elected and appointed officials

the political and career managers

the managers and frontline workers

the federal and state governments

the state and local government

Integrity also covers several other core values indispensable to

public service. These are:

(a) Courage:

- A person of integrity possesses moral courage and does what is

right even if the personal cost is high.

(b) Responsibility:

- No person of integrity is irresponsible

- A person of true integrity acknowledges his/her duties and acts

accordingly

(c) Accountability:

- No person of integrity will shift blames to others or take credit for

the work of others

(d) Justice:

- A person of integrity practices justice and fairness

- Those who do similar things must get similar rewards or similar

punishment.

(e) Respect:

- A person of integrity respects others, great or small and respects


21

oneself

- A person who respects does not behave in ways that would bring

discredit upon himself or the organization to which he belongs.

(f) Courtesy/humility:

- A person of integrity is polite to colleagues and the general public

who benefit from services provided by government.

(g) Love, Care and Compassion:

- A person of integrity shows love, and cares for others

- He is also compassionate and empathizes with people under

distress

(h) Truthfulness:

- A person of integrity will tell the truth at all times

- He will not lie to cover up gross inadequacies

LYING:

- lying is asserting something one does not believe to be true

- the liar therefore, induces a fake belief in the gullible public

to act in false beliefs

EFFECTS OF LYING:

- lying harms the liars own character

- lying makes the liar a more selfish person

- lying erodes the integrity and reputation of the liar

- lying makes the liar not to be believable

- the person who lies becomes a little inclined to lie again in

the future

- lying lowers society generally as it tends to destroy trust and

the spirit of co-operation

- lying makes legitimate government illegitimate

- a liar in government is likely to be fraudulent


22

CONCLUSION:

Morality is the sense of right and wrong in human beings. It is the

consciousness that certain ways of behaviour are wrong and should be

avoided while some ways of behaviour and actions are right and should

be encouraged .

Every sane society would want the establishment of good

governance powered by visionary and ethical leadership and responsive

and responsible workforce.

The Nigerian Public Service has witnessed over time and space, a

rapid decline in the recognition of these highly valued non-material

resource (core values).

In this era of rebranding, there is the urgent need to re-instate and

adopt earnestly these cherished core values by all public officials, public

servants and Political Officer‘s.

Once this is done the Nigerian Public Service will begin to wear an

attractive new look.

(i) Public officials will be held accountable for their actions and

inactions

(ii) Transparency in service will increase

(iii) Governmental responsiveness and legitimacy will be enhanced

(iv) Policy formulation and implementation will improve

(v) Trust between the leaders and the governed will be established.


23

REFERENCES Administrative Staff College of Nigeria (ASCON 2005): Top Management Retreat. Administrative Staff College of Nigeria (ASCON 2006): National Workshop on Repositioning the Public Service for Effective Service Delivery. Civil Service Handbook (1997): Office of the Head of the Civil Service of the Federation, The Presidency. Constitution of the Federal Republic of Nigeria (1990) Grover Starling (2008): Managing the Public Sector, Thomson Wadsworth. W. N. Shellukindo and R. Baguma (1993): Ethical Standards and

Behaviour in AfricanPublic Services, in Sading Rasheed and Dele Olowu (eds) Ethics and Accountability in African Public Services, AAPAM.


24

OVERVIEW OF OFFICIAL COMMUNICATION IN THE

PUBLIC SERVICE Learning Objectives:

At the end of the session, participants should be able to

define communication and state it‘s importance

explain the relevance of information to the job of a Public/ Civil

Servant

list and explain the sources of information in the Service

list the means/ media of communication in the Service.

Introduction

Communication is the most general form of interpersonal

interaction required for decision-making. It has been said that

managers/administrators spend more than eighty percent of their time

communicating, attending meetings, reading and writing memos,

circulars as well as letters or answering telephone calls. In other words,

communication is the process which links all the managerial functions in

an organization. Therefore, an understanding of the communication

process, media of communication and the principles of communication

can lead to improved managerial performance.


25

Concept clarification

Communication is defined as the process of transmitting information and

understanding from the sender to the receiver(s) (Eniaiyejuni, 2001). It

involves at least two parties- a sender and a receiver. In other words,

communication is the process of imparting ideas and making oneself

understood by others. It is unnecessary to have agreement in

communication but there must be a mutual understanding for the idea(s)

to be successful. Otherwise the sender will be transmitting spoken or

written words.

Process of Communication

Every communication process requires seven (7) steps namely:

Ideation - involves the sender creating an idea, opinion or fact to

be communicated.

Encoding – involves translation of the message(s) into a set of

symbols which the sender feels will communicate his intended

message to his receiver. The encoded symbols may be words,

tables, diagrams, pictures etc.

Transmission – of the encoded message over a channel which

may take the form of writing (memoranda, circular, letter) or oral

delivery (telephone, speech, TV, radio conversation) or body

movements (facial expressions, gestures).

Receiving – the message by the target. However, the receiver

may not be listening or his thoughts may be on another activity

entirely at the time of transmission, so the message can be lost.


26

Decoding – involves the receiver interpreting the message to have

a particular meaning.

Understanding – requires the ability of the receiver to decode the

symbols to mean exactly what the sender intended it to be.

Feedback - which is in form of an action or behavioural change

indicates the level of understanding created. This allows the

sender to determine if the intended message has been accurately

received.

Basic purposes of Communication in the Service

The basic purposes of communication in the service are to, among other

things,:

Achieve coordinated action;

Influence or motivate people;

Make decisions;

Give advice or warn;

Give directive;

Make suggestions;

Persuade or educate

Sources and media of communication

The entire operations of the Public/ Civil Service depend on

communication. As earlier mentioned officers are either reading or

writing memos, minutes, letters, speeches etc or even attending

meetings as well as making or receiving phone calls. In all of these,

accurate information is key because the quality of subsequent decisions

is dependent on the accuracy or otherwise of the information provided.


27

Hence the need for officers to be able to identity sources of information

required for his/ her work.

Sources of information

Constitution of the Federal Republic of Nigeria

Public Service Rules

Financial Regulations

Circular and Circular letters

Official gazette

Approved estimates/ the budget

Laws of the Federal Republic of Nigeria and states

Civil Service Commission guidelines

Reports of Commissions

Government White Paper

Hansards of the National and State Assemblies

Civil Service Manual and Handbook

Conditions of Service document

Office Manual

Annual Reports of MDAs

Central Bank of Nigeria publications

Bureau of Statistics‘ publications

Annual Abstract of Statistics

Nigerian Year Book

Who is Who in Nigeria

Telephone Directory

Other government publications

The media of communication in Government include:

Minutes

Letters

Reports

Meetings

Minutes of meetings


28

Circulars

Office notices

News letters

Handing over notes

File notes

Briefs

Memorandum

Endorsement etc

All of these constitute the forms of your work virtually on daily basis.

Principles of Communication

In all of the above listed means of communication, the following

principles must apply.

Principle of clarity (no double interpretation)

Principle of objective

Principle of simplicity

Principle of adequacy (complete information)

Principle of timeliness

Principle of correctness

Principle of politeness

Conclusion

The bulk of the work done by public servants is production of minutes

and correspondence. It is, therefore, of major importance that they

should be familiar with basic principles and procedures of minuting,

memo and letter writing among others. At the same time, they must be

familiar with basic techniques of clear writing. They must learn to seek

clarification when in doubt. Finally, they should be reminded that:


29

―All communication from public servants must be polite. Even replies

to discourteous writers should be couched in courteous manner‖.

References

Eniaiyejuni, B.O. (2001). Making Communication Effective in 21st

Century Organisation. ASCON ‗s Occasional Paper Series

OHCSF( ). Civil Service Manual and Handbook .


30

REPORT WRITING

Learning Objectives

At the end of the session, you will be able to:

define Report

list the stages of Report Writing

list some of the principles of clear writing

identify the stages involved in structuring a Report; and

describe how to produce a Report.

Agenda

The contents of this session include:

- Introduction

- The Meaning of a Report

- Stages of Report Writing

- Reports in Perspectives

- Structuring the Report

- Drafting the Report

- Typing and Printing the Report

1.0 Introduction

Functional or business writing takes many forms, such as

reports, memos, letters, circulars, or even brochures. The

language and layout used in any two of them will often not always

be the same. This is because they serve different purposes and

attract different readerships. The language must be simple for the

reader to understand. Design and layout should enable the reader

to get facts in a sequence that helps him/her grasp the whole

picture clearly and logically.


31

1.1 The Meaning of a Report

A report is a formal statement of the results of an

investigation or of any matter on which definite information is

required. It is a document in which a given problem is examined

for the purpose of:

* conveying information

* expressing findings

* putting ideas forward and/or

* making recommendations.

A report is a form of written communication with obvious

components such as the subject, the writer (person or body) the

reader and a purpose. It is therefore essential for whoever is

writing a report to bear all these components in mind. Report

writing, as a task, therefore needs planning in order to ensure that

the reader gets a product that is not only accurate and complete

but also clear to him/her.

1.2 Stages of Report Writing

There are, at least, four basic stages in the report writing

process. These are:

(i) Preparation

(ii) Planning

(iii) Writing

(iv) Revision

Each stage has a number of factors to consider.

1.2.1 Stage I: Preparation

This stage includes:


32

Understanding the Purpose of the report

Stating the objective(s) of the report

Reaching an agreement on the Terms of Reference

Defining the reader

Determining what the reader already knows, what he

wants to know and how he will use the report.

Deciding on how to collect materials – Experiment,

Observation, Interviews, Questionnaire and where to

collect materials – Library, Files, Internet etc.

1.2.2 Stage II: Planning

This stage involves:

Composing thesis/ideas/opinion statement (if any)

Deciding what must be included

Arranging collected materials in logical sequence

Making an outline

Sketching out headings and sub-headings.

1.2.3 Stage III: Writing

This stage is very critical, requiring decision on:

Styles depending on types of report:

Business

Scientific/Technical

Investigation

Feasibility

Study Group

Training Needs Analysis

Arrangement:

Numbering/Lettering of paragraphs

Chapters and Parts


33

Table of Contents, Appendices, Glossary, etc.

Introduction: containing:

Significance of report

Purpose and Terms of Reference

Background Information

Summary of Recommendations

The Main Sections

List of References

1.2.4 Stage IV: Revision

This includes editing and proofreading. It is a stage of

criticizing the report by:

Examining the report as a whole (the plan, the parts, the

proportioning, etc).

Checking agreement of Title, Table of Contents,

Introduction, Summary, Conclusions, etc.

Checking agreement of headings with Table of Contents

Examining details of text (transition from topic to topic,

part to part, sentence to sentence)

Check wordings for accuracy, completeness and

placement

Reading texts aloud to oneself or some one else

Checking for ambiguities, grammar, spellings,

punctuations

Ensuring simplicity and logical flow

Giving report to a second person to make comments


34

The four stages above dovetail into one another without any

concrete delineation.

1.3 Reports in Perspective

Written communication complements oral communication,

but in some cases the written report will become the main or the

unique communication channel. In addition to summarizing and

conveying information and stimulating the reader to act, reports

have other important functions. They contribute by their quality

and presentation to the impact the writer makes during the

assignment. They also affect the writer‘s general reputation.

An excellent report meets three basic criteria:

First, it is reader-friendly. Its structure, styles, terminology,

readers arguments used and any other features are selected

with regard to the readers background, needs and

preferences. The basic question is: ―What sort of report will

render the best service to the reader and will be easily read

and understood by the reader and not: ―What sort of report

do we like to produce in our firm?‖

Obviously, in many cases the reader will have no particular

preference and will leave the choice to the writer. Yet the

question must be asked, and discussing it directly with the

reader may be very helpful.

Second, a report should be easy for the writer to write. Ease

of writing leads to ease of reading. In addition, it saves time

and money for the reader who is going to pay for the time,

spent by the writer on report writing, and uses his or her own

time studying the report. In an extreme case, a poorly


35

drafted report may put off the readers and achieve the

contrary of what was intended.

Third, and most importantly, the aim of every report is to

convey a particular message. This message (or purpose)

needs to be clarified before drafting the report. This course

of action will help to structure the report, choose a

convenient style, and organize facts and information in

support of the message to the reader.

Before starting work, the writer should consider six basic

questions and expand on them as in the following examples.

WHO: Who is going to read the report?

WHAT: What does the intended reader already know?

WHY: Why is it necessary for the report to be written?

HOW: How should the report be presented and in what form?

WHEN: When will the recommendations of the report be carried out?

And therefore by what date must the report be completed?

WHERE: Where will the report be written?

As a matter of principle, reports should not repeat information

obtained from the reader or well known to him or her, and general

information on the background situation, with the exception of

information which directly justifies conclusions or documents the work

performed. The essence of information is news. Thus, the information

content of reports should consist of:

- facts discovered for the first time by the writer;

- newly discovered significance of known facts;

- newly found connections between known effects and hitherto

unknown causes;


36

- solutions to the readers problems, and their justification;

- facts showing to the reader that he or she needs to take

action, and any other facts commanding the reader‘s

attention.

1.4 Structuring the Report

The contents need to be arranged in the best sequence for

the nature and purpose of the report and for the desired reaction to

it. This may be difficult. The author may be tempted to describe

the whole analytical and thinking process of the team, but the

reader is looking for results and proposals that will bring tangible

improvements to the organization. Although the author may hope

the reader will start at the beginning and read through to the end,

there is no guarantee of this. This is one of the hazards of written

communication. Persuasion requires careful build-up through a

reasoned sequence – which the reader may not choose to follow.

A solution to this may be in a well-presented summary at the

beginning of the report, which is confined to the principal message

of the report and key supporting information. Many busy

executives will read the summary for overall guidance to the

structure and the main conclusions of the report even if they do not

read all chapters. Based on the executive summary, they may

choose to look at certain parts of the report more carefully.

A table of contents is essential (except in very short reports);

it is regrettable that many reports do not have one. The best place

for the table of contents is at the very beginning of the reports, i.e.

preceding an introduction, a preface, a summary, or any other


37

sections. In some countries (e.g. France) it has been customary to

give a table of contents at the very end.

The whole report should be carefully planned. It will contain

main ideas and topics, some of which will have subdivisions. It

may help to write headings and sketch the subject-matter on

sequence sheets or cards. The sheets may then be sorted into the

best order for deciding the outline and for drafting.

Marshalling the body of a report into a logical structure is

aided by having a formal system of numbers and/or letters for main

headings, subheadings and so on. The wording after each

number may be printed in a different style. A decimal system may

be used, as in the example on the left, or number and letters, as in

the example on the right:

1. Main heading 1.1 Subheading 1.1.1 Sub-subheading

1. Main heading 1. Subheading A. Sub-subheading (i) Listed item (ii) Listed item

The advantage of such a scheme is that it makes the writer

think about priorities and determine which topics are genuine

subdivisions of others. It promotes the orderly organization of the

structure and points the way to economy of layout and avoidance

of repetition.

For example, a report covering three subject areas, Buying,

Stores and Production, deals with three statements about them:

Findings, Conclusions and Recommendations. Which of the three

layouts overleaf may be the best?

For any particular report one of these may prove easiest, but

if ―findings‖ tell the reader nothing new, there is no point in


38

belaboring them. ―Conclusions‖ usually lead straight into

―Recommendations‖. It could even be that the whole report needs

to be written as for section 4 in the third column overleaf, the

recommendations themselves being written so as to make the

findings and conclusions quite clear. A report is not a research

paper, but carries a message that should stimulate and orient

action.

1. Findings Buying Stores Production

1. Buying Findings Conclusion Recommendations

1. Buying Findings Conclusion

2. Conclusion Buying Stores Production

2. Stores 2.1 Findings 2.2 Conclusion 2.3 Recommendations

2. Stores 2.1 Findings 2.2 Conclusion

3. Recommendations 3.1 Buying 3.2 Stores 3.3 Production

3. Production 3.1 Findings 3.2 Conclusion 3.3 Recommendations

3. Production 3.1 Findings 3.2 Conclusion

4. Recommendation 4.1 Buying 4.2 Stores 4.3 Production

Everything depends on priorities, weights, balance and purposes; a scheme of marshalling helps to sort them out.

Appendices are useful for taking out of the body of a report

detailed descriptions, listings, tables, charts, diagrams, etc., that

would break up the continuity of reading and would be difficult to fit

in. The body of the report is essentially for reading and quick

examination of summary data. Appendices can include items

which, though they make a contribution, require a more lengthy

examination. It does not help to make a case if the reader is

suddenly confronted with several pages of closely tabulated


39

figures. Small tables or diagrams, however, are not disturbing.

They break the text monotony, convey selected or summarized

information, and should be maintained in the main text.

If a report included, for example, the complete specification

of an office system, this would almost certainly be in an appendix.

Such an appendix may later become part of a general manual of

procedures for the reader, while the report may remain

confidential.

Acknowledgements have to be made, especially in final

assignment reports. This will require tact. If names are mentioned

there must be no omissions; every genuine helper likes to see his

or her name on the list. At the same time, to include someone who

has been more of a hindrance than a help – and knows it – may

cause mixed feelings all round. If the list would be too long, it is

better to leave it out and settle for general thanks and the remark

that ―it would be an impossible task to mention everyone who…‖

1.5 Drafting the Report

Executives are flooded with reports, and hate long and badly

written ones. It is useful, therefore, to observe certain principles,

which have been summarized in box A1.

Box A1: Principles of clear writing

1. Keep the report as short as possible. 2. Consider your reader, his or her outlook and experience. 3. Write to express, not to impress. 4. Write naturally: style that flows smoothly and does not

draw attention to it is the most effective. 5. Try to keep sentences short; vary their length but let the

average be around 20 words. 6. Avoid clumsy sentences and carefully blend short and


40

long words. 7. Use familiar words, avoiding rare or far-fetched ones. 8. Avoid jargon unless it is sure to be familiar to the reader

and you know what it means. 9. Avoid unnecessary words that give an impression of

padding. 10. Use terms the reader can picture; use the force of the

active voice; use the passive voice to vary the style. 11. Put action into your verbs; use the passive voice to vary

the style. 12. Keep every item of a report relevant to the purpose. 13. Ensure that the contents include all the points necessary

to the purpose. 14. Keep a proper balance, giving space and emphasis to

each item according to its importance. 15. Keep a serious ―tone‖ as befits a serious purpose; do

not tempt the reader to read between the lines; if you do, you are at the mercy of his or her imagination.

16. Be careful in the use of numbers; figures tend to draw attention to themselves; decide when absolute values have more significance than percentages and ratios, and vice versa; when quoting figures from other sources, be exact; when estimating, consider the order of accuracy and round off.

17. If you quote from other sources give precise and complete references.

Source: some of the principles are adapted from R. Gunning: the technique of clear writing (New York, McGraw-Hill, 1952)

When the author has the time, the first complete draft should

be put aside for a day or two, after which anything wrong is more

easily seen and revised. When it looks right to the author,

someone else should read it.

When drafting the report, the author may find out the report

outline originally chosen is not the best one. There is no point in


41

sticking to an inconvenient outline. However, if the reader agrees

to that outline before hand, he or she should also be asked to

agree to a modified outline to avoid a possible misunderstanding.

If the report is a collective piece of work and the co-authors

are known to have different personal styles, final editing should be

foreseen. Consistency and homo-geneity (of style, layout,

terminology, length of sections, etc.) are key characteristics of

excellent reports.

1.6 Typing and Printing the Report

The report must look professional in every respect. Its cover

and binding should give an excellent impression without looking

luxurious. Inside, the layout of the text should allow a generous

margin for binding and notes made by the reader, be impeccably

printed on a laser printer or similar, and free from extraneous

marks or alterations. Any graphs, charts and diagrams must be

well drawn and in every respect up to the typescript.

The author may have his/her own standard format that not

only distinguishes its reports but caters for filing and control in its

reports library. Within the covers, the body of the report may also

have a standard layout for division and subdivision of the contents,

which can be used if it is not in conflict with the purpose and spirit

of a particular report.

The final draft prepared for reproduction should leave the

secretary/typist in no doubt as to precisely what is required. The

author should take the trouble to lay out the text as it should

appear in the final version. The author is also completely

responsible for ensuring that no mistakes remain.


42

The production of reports is greatly improved by judicious

use of word processing. Most authors prepare their reports, or

their inputs in collective reports, on their personal computers. All

contributors must strictly adhere to a common format. Corrections

and amendments can then be made easily by the report author or

editor.

A reader may wish to receive the report on a diskette or

through E-mail in addition to, or instead of, getting printed copies.

System compatibility should be kept in mind because flawless

conversions of documents are rare.


43

DRAFTING, MINUTING, MEMO AND OFFICIAL

LETTER WRITING 1.0 Learning Objectives

At the end of the discussion, participants will be able to:

- define a draft;

- write an acceptable draft;

- define Minuting;

- explain form and content of a minute;

- define a Memo;

- state levels of Memo Writing;

- discuss proper steps in Memo Writing; and

- write a good Official Letter.

2. Introduction:

In the conduct of Government Business, the above subject is

practiced on daily basis and so frequently. Hardly can one day pass in

any Government office without somebody doing any of the activities

itemized in this subject, nor can Government Business take place

without any of the items constituting this subject. In short, Drafting,

minuting, memo and official letter writing constitute the soul of the

conduct of Government business. The bulk of Government business is

transacted through the production of minutes and other forms of

correspondence for which the basic principles and procedures are

standardized. In the Public Service, all officers are involved in drafting,


44

minuting, memo and official letter writing. We shall treat this subject by

taking its components one after the other.

3. Drafting:

Drafting is the process by which a draft is produced. A draft is a

proposed reply, circular, speech or other document, put up by an officer

to a higher authority for vetting. If the proposed reply or suggested

document serves the prescribed purpose, it is considered good and

approved. When a draft has been approved, it is sent to a typist to be

produced in the correct form for issue. The act of typing the letter in

form is known as ‗fairing‘ and the finished document is known as a

‗faired draft‘.

A draft may be amended by filling in the gaps in the efforts of the

officer or by the incorporation of additional facts by the senior officer. A

bad draft, e.g. one which does not show an appreciation of the point at

issue or one hastily put up without taking pains, may be rejected and

scrapped.

Feature of a Good Draft

(i) Clarity of thought and expression – Say exactly what you

wish to say in simple and direct language. Avoid repetitions.

(ii) Accuracy – Verify all facts and figures before writing.


45

(iii) Grammar – Weak or indifferent grammar mars the quality of a

draft. Special care is necessary in the use of punctuation

marks.

(iv) Courtesy – All communications from public servants to persons

inside or outside the public service must be polite. Even the

reply to a discourteous writer should be conducted in courteous

terms.

Double line spacing is used in typed drafts so that there is ample

space for amendments. Drafts should be typed or printed on reverse of

used sheets. Clean sheets with discarded typescripts at the front may

be used for producing drafts. Discarded papers containing classified

information should never be used for drafting.

Bad Draft

- Does not show appreciation of the point at issue?

- Inadequate research.

- Hastily put up.

- Full of gaps and inaccurate.

When to draft

- A routine matter

- Reply letter for vetting and signature.

- Directive from superior officer.

4. Minuting

A minute may be defined as a communication in writing usually in

files between two or more officials. This definition does not apply to a

letter from one officer to another. Minutes are normally used to consider


46

and settle matters or to direct what action may be taken in a given

circumstance. Minuting is the act of writing a minute.

Forms and Contents of a Minute:

The top left-hand side of a minute refers to the person, by

appointment, to which it is written. The text of the minute follows. It is

concluded by the signature or initials of the writer. Immediately under

the signature or initials is the name of the officer writing it. Under his

name, the post held is shown and the date of his minute. In recent

times, the practice is not to write names in minutes, only the signature,

post, and date. This notwithstanding, names are written in so many

organizations. It is a matter of style.

If a minute contains references to matters already dealt with or to

papers within the file, the pages so referred to should be flagged with

slips of paper clearly showing their numbers. When minutes are copied

to other files, the copies should be clearly marked at the top with the

reference and page number of the file containing the original minute.

Short titles and official abbreviations are used when writing

minutes e.g. Perm, Sec. or D-G.

When a minute is routed through more senior officers, they should

not alter it (other than amending spelling or grammatical errors) but


47

should write additional paragraphs in which they can each express their

views on the statements made by their subordinates. Every such

additional statement is signed by its contributor. If an intermediate

officer entirely agrees with the statements made by his subordinates, he

can indicate this by merely initialing and dating against his designation in

the address of the minute. He needs not append a paragraph merely for

that purpose, but if he particularly wishes to emphasise his support, he

can do so even if that paragraph contains nothing more than the word

―supported‖. Minutes are usually routed back through the same

channels as they were routed outwards, Minutes are expected to be

short and straight to the point. There should be no subject heading.

When a minute is addressed to a superior officer and there is

insufficient space for his reply, a blank unnumbered sheet should always

be enclosed in the file before it is submitted.

5. Memo Writing

Memo writing is a form of written communication, used in the

public service, to initiate action or policy, with a view to obtaining

approval. This idea of obtaining approval implies that a higher authority

gives it to a lower level for implementation by all concerned. Hence,

memo writing as an activity is bottom-up and not top-bottom process,


48

because, the subordinate through Memo seeks approval. The higher

authority rather directs the lower authority or subordinate officer in view

of the fact that the public service is hierarchical.

Memo could be written at the following three (3) levels of

communication.

(i) Within the Ministry/Parastatal and this we can refer to as intra

organisational;

(ii) From one Ministry/Parastatal to the other and this we can refer

to as inter ministerial or organizational; and

(iii) From a Ministry/Parastatal to the Cabinet Office for

consideration by the Executive Council of the Government.

Such memos are prepared as Council Memoranda (Council

Memo) by the Cabinet Office in a special form that it would be

considered by the Executive Council.

It should be noted that memos for the Executive Council meeting could

emanate from any Agency or Arm of Government. The purpose of

memo at whichever level of communication is for a higher authority to

take decision on the subject at issue. It should be remembered that

memo is not letter. Hence, memo should not be written as letters rather,

if a memo has to be sent outside the Ministry/Organisation, such a

memo should be sent via a covering letter.


49

Steps in Memo Writing:

The following are steps or stages of memo writing:

(i) Designation and Address of Addressee:- The official

designation and address of the addressee should be written at

the top left hand corner of the paper.

(ii) Subject of the Memo:- The subject of the memo should be

written below the address but centralized. The subject is

usually written in capital letters. This could be highlighted in

computer-processed documents but not underlined.

(iii) Introduction:- The opening paragraph of any memo is usually

an introductory one. Here, the background of the matter is

stated in a comprehensive way. This enables the reader to

have a good grasp of the subject. Inability to give adequate

background information leads to inability to follow the

arguments in subsequent paragraphs. The rationale and the

antecedents of the matter must be made clear to the reader.

(iv) Analysis:- After the introductory section, the facts of the matter

are presented. Quantitative data could be provided where

available. Here, the writer is expected to give the two sides of


50

the presentation or situation. In doing this, the following sides

of the mater could be given:

- Advantages and disadvantages

- Merits and demerits

- Strengths and weaknesses

- Pros and cons

This enables the approving authority to see the issue in its entirety

before taking decision. It is improper, nay, an offence, to conceal an

aspect of the matter from the approving authority. This is because, as

soon as approval is given, the approving authority becomes liable for

any consequence of that decision. It is unfair to conceal a fact from the

approving authority, thereby making him take decision that he would not,

given the full facts.

The writer of the memo is required to do a thorough research,

updating all data before forwarding the memo for approval. It is a mark

of laziness to compel the superior officer to supply the missing facts in a

memo. The entire write-up must be error proof because, in forwarding a

memo for approval, the writer by implication is saying that ―he has given

all the facts and that the superior officer can now take decision‖.

(Sometimes to his own peril).


51

The hallmark of a good administrator is writing a convincing memo.

The seasoned administrator is expected to take argument systematically

along the direction he wants to support, writing strongly and convincingly

in that direction, at the end of which the higher authority cannot but

approve the request. A convincing memo recommends itself. It is better

to support your memo with facts and figures and convince the reader,

than relying on sentiments, which do not sound convincing, and get the

memo thrown out.

(v) The Prayer:- The climax of any memo is the ‗prayer‘. By

‗prayer‘ we mean the request. The prayer section or paragraph

requires the writer to state in a nutshell what he/she wants the

approving authority to do. Sometimes, there may be just one

request to be made e.g‖

The Permanent Secretary is hereby requested to kindly/graciously

approve that …

Or

There may be several aspects or items to be approved in which case

the prayer could be itemized as follows:

The Permanent Secretary is hereby requested to kind/graciously

approve that:


52

(i)

(ii)

(iii) ; and

(iv)

It is improper to ask approving authority to approve everything you

wrote in a particular paragraph in which several sides to the matter exist.

Such prayers prevent the approving authority from giving approval.

Rather, they will write, ―Speak‖ or ―please discuss‖. The reasons being

that some aspects of the memo are not agreeable to him/her. In order to

avoid refusal or delay to approve on block issues, it is advisable to

itemize your prayer as shown above. This would enable the approving

authority to select the items he wants to approve and be silent on the

rejected ones. On the other hand, all the items may be considered good

and hence approved.

(vi) Submission:- After the approval section, the memo ends with

the submission paragraph. e.g. Submitted for the Permanent

Secretary‘s kind consideration and approval, please.

Or

Submitted please.


53

(vii) Identity of Writer:- The memo ends with the signature of the

writer, below which is written the name. The designation of the

writer comes below the name, after that, the date comes last.

6. OFFICIAL LETTER WRITING

Official letters are written on official letterhead. Hence, the writer

does not need to bother about arranging the items on the letterhead. Fill

in the required items like Reference No., Date and any other information

required. The address of the addressee is written at the top left hand

corner of the paper. If the correspondence is to an organization, the

official designation of the addressee is written. Sometimes, there may

be a schedule officer in charge of the matter requiring the

communication. In such a case, the letter may be written for his/her

attention, usually indicated below the address of the addressee.

Every official letter is expected to have a heading. Letters are

usually written in paragraphs that are numbered. If a letter is a reply to

an earlier one received, there are three (3) or more ways of beginning

paragraph 1. We start by saying for example:

(a) With reference to your letter Ref. No. APP/TRG/II/146 dated

6th June, 2009

(b) Reference your letter No APP/TRG/II/146 dated 6th June,

2009


54

(c) Your letter Ref. No APP/TRG/II/146 dated 6th June, 2009

refers.

(d) Please refer to your letter No APP/TRG/II/146 dated 6th

June, 2009.

After the reference, you many add one or two more statements in

that paragraph 1. Otherwise, the reference statement could be used as

paragraph 1. The matter at issue is conveyed in paragraphs and

logically presented. At the end of the letter, you may end by saying

‗Thank you‘

In official letters, use of salutations at the beginning is often

avoided. When a letter is to be written to a familiar person outside the

organization, the style adopted is usually ―Dear…..‖ ending with

―Yours…‖ Official letters to non-Government bodies are slightly more

formal, they open with ―Dear Sir‖ and close with ―Yours faithfully‖ or

when the addressee is personally known to the writer, ―Dear Mr…..‖ and

ends with ―Yours sincerely‖.

The rule in Public Service is that any designated officers can write

a letter on behalf of the organization but he or she must sign for the

Chief Executive.

A letter may contain an enclosure or attachments. Indication of

attachments or enclosure is made by typing a hyphen at the left margin


55

of the line on which the enclosure or attachment was written. Or, the

word ‗enc‘ could be written at the bottom of the letter at the left corner.

Some letters may require endorsement. This is a short letter,

addressed to another person just below the original letter, indicating

what action the second addressee is expected to take. This must be

signed also, but in a signature different from that on the original letter.

Letter to Organisations outside Public Service

- They take a more formal approach.

- Use of salutations.

- Closed with ―Yours faithfully‖.


56

SPEECH WRITING

LEARNING OBJECTIVES At the end of the session, participants should be able to;

I. Define key concepts;

II. Identify the major components of speech writing;

III. Discuss Speech Writing as every officer‘s job;

IV. Identify a good speech; and

V. Explain the tools of Speech Writing-components, types, style,

language, construction etc.

LEARNING OUTLINE Introduction

Concept Clarification

The Concern of Speech Writing

Essential Components

Speech Writing in Public Service

Types of Speech

Style and Language

Speech Construction

Conclusion

INTRODUCTION

The whole idea about writing is to effectively communicate , that is

to share information between two or more or groups to reach a common

understanding. Effective communication therefore is an essential

component of organizational success whether it is at the interpersonal,


57

intergroup, organizational, or external levels. But any communication

that is said to be effective involves transmitting the message in a manner

which is clear and articulate. This results in leaving the person who is

communicating and the one who is receiving the message in a clear

alignment.

Speech Writing is an effective communication tool that relates

organizational or govt. policies and programs to individuals,

organizations, or any other intended target group(s) or audience in order

to gain the support of the people. This may be in form of a welcome

address to be presented to an august visitor, a speech to a club or town

association or union, a political speech to an electorate, or a talk to a

professional body. It thus becomes necessary for the writer to be very

careful in planning and preparation irrespective of the form it takes.

THE CONCERN OF SPEECH WRITING

It becomes essential to state that in speech writing, the writer must

be concerned with the ingredients necessary for effective

communication. This is because the whole process gyrates on sharing

information and reaching a common understanding.

Information management views speech writing as an important tool of

communication that relates government policies and programs to

individuals, groups, organizations and all other stakeholders or intended

target audience.

Speech writing as a means of communication is widely recognized

as an essential instrument of informing, persuading, convincing and

mobilizing the support of the citizens or masses towards government

policies and programs.


58

The importance of speech writing in the sphere of government

activities cannot be over emphasized. This is because this activity is

gradually gaining good ground as a potent tool to inform the citizens of

its policies and programs. In this respect, where the intended

beneficiaries of a good policy measure are not properly informed through

effective communication media, there could exist a premature death of a

good idea, intention policy project or program. In other words,

tactlessness and poor communication can kill bright ideas.

In addition, poor communication and/or inappropriate

communication channel is an index which is capable of making a

beautiful and beneficial welfare policy measure rejected by the citizens

before implementation. It is however, necessary to use good

communication and proper language (style) to disseminate the idea

(message).

ESSENTIAL COMPONENTS OF A SPEECH SITUATION

Since the central point of speech writing is to communicate, there

are essential components of speech situations that must be given

utmost care and considered when writing speeches in order to achieve

the desired goals – sharing of information and reaching a common

understanding. These are:

(i) The Speaker

(ii) The Topic

(iii) The Audience

(iv) The Time

(v) The Purpose

(vi) The Occasion

(vii) The Place


59

THE SPEAKER

When the need arises to communicate through speech writing, the

speaker is first and foremost seen (despite the fact that he seldom

shows face to the person writing the speech) as the initiator of the

communication process. Therefore, the writer will, for effectiveness,

design the speech according to both his skill and close thoughts of the

speaker. In order words, the character, attitude, ethical and moral

standing, including opinions and views of the speaker are the corner

stones upon which the speech should be constructed. Thus, attempts

should not be made to make the speaker deviate from what the public

already knows of him and what is expected of him, including his

personality which must be reflected in the speech.

TIME

It is important to consider speech writing on the basis of time

(expediency, immediacy or future effect), speaker‘s status (whether

civilian/politician or military) and the prevailing circumstances at the time

of writing the speech. In addition, the speech should reflect whether

there is upheaval, protest, ceremony, appreciation, new policy or general

information in order to couch the intended message in such a way that

the sense and substance of the content will reveal the mood and temper

without being moody and temperamental. In this light, it is expected that

the language (style) of the speech should reflect any of these in order to

drive the point home. Let us consider the following statement as

examples of situational differences :

a. ‗A bill will be forwarded to enact a law….‘

b. ‗The following decisions come into immediate effect…‘


60

There is every reason to believe that (a) is indicative of a democracy

while (b) reflects a situation of military order. Hence the language in (b)is

authoritative and incontestable. Therefore, it is necessary in considering

the speakers personality, to put the following into focus: leadership,

responsibility, humanity, intelligence, integrity and ethics as qualities

identifiable with him/her. Let us consider the following statements:

a. ‗This regime will be firm, humane and decisive. We will not

condone or tolerate any act of indiscipline. Any attempt to test our

will, will be decisively dealt with……‘ – Gen. Sanni Abacha‘s

maiden speech 18th Nov. 1993

b. ‗I will need good men and women of proven integrity and record of

good performance to help me in my cabinet… It is one of the best

ways of rendering dedicated service to humanity…‘-Chief O.

Obasanjo‘s Inaugural speech on the 29th of May, 1999.

While statement (a) is a peremptory, typical of a military regime that

must be obeyed, (b) is a solicitation-like request statement in a

democratic administration. The tone and mood of both statements are in

contradistinction. They serve different purposes either to command or to

appeal, depending on who speaks what and to whom, why where and

when? Please consider the following: ‗In your hands, my fellow citizens,

more than in mine, will rest the final success or failure of our course…‘

J.F.Kennedy‘s Inaugural address on Friday, 20th January, 1961. The

style of the inaugural address has remained world class because of

diction (choice of words, figurative language, phrase making, and variety

of appeals. Therefore, the speech was hailed as ―distinguished in style


61

and brevity as well as for its meaty content‖ (The New York Times

magazine Feb. 25, 1962, p.70)

THE AUDIENCE

This can be described as the total number of people who are

reached by a particular medium. As can be found in the process of

communication which involves a sender (encoding) message, medium,

receiver (decoding), noise (semantic) and feed back (response). The

audience is the receiver in speech writing. Therefore, the audience

constitutes the persons or group of persons to which the speech

(message) is addressed

In writing a speech, attention is required to be focused on the

people for whom the speech is meant. In this regard, the audience level

of education, understanding of the subject, medium of communication

(whether print, electronic or locally employed medium), their cares and

fears, security, preferences and prejudices, cultural background and

general perception of things must be considered. Most importantly, it is

the level of perception that holds the key to the success or otherwise

associated with audience(s). This is because it has a central role in

making the people to select, organize, and interpret sensory input to give

meaning and order to the world around them. Therefore, the role of

perception determines a lot of things. This is part of the feedback

because it is inherently subjective and influenced by people‘s

personalities, values, attitudes and moods as well as by their experience

and knowledge.

THE TOPIC, OCCASION AND PLACE

These are factors that determine the materials to use. In choosing

the materials, it is the personality of the speaker that will give flavor to


62

the occasion within the context of the time required to deliver the

speech. Such good choice of materials will make the audience

understand the topic very well. Let us take the case of John F. Kennedy,

former American president (1917-1963) who made two antithetical

statements on two different occasions, as follows:

Specimen A: ‗We observe today not as a victory of party, but a

celebration of freedom…‘

(Inaugural Address, Washington, D.C. January 20,1961).

Specimen B: ‗We observe tonight not a celebration of freedom but a

victory of party…‘

(Democratic Party Celebration Speech after winning the election- Times

Magazines, Feb. 25, 1962, Page 70)

It can be noted that President Kennedy‘s diction was intended to

suit particular occasions like, Inauguration, United Nations Assembly,

Cocktails etc. His speech writer, Mr. Ted Sorenson ensured that the

audience, occasion, time and place were focal points in the content and

delivery of all the speeches he presented to the president. In line with

this unique style of Speech Writing, one can consider the import and

impact of Specimens (A) and (B) above to see how the writer couched a

particular style of language to present the personality, integrity,

intelligence and uniqueness of President Kennedy.

Juxtaposing specimens A and B, there is a manifestation of a

rhetorical contrast of ideas by means of parallel arrangements of words

or clauses. That is why the sentences are antithetical. It becomes

necessary to treat this pattern of language usage, and style more

extensively in the subsequent paragraphs.


63

SPEECH WRITING IN THE PUBLIC SERVICE

It is a medium of communication used by government to

disseminate information on its programs. In this connection, it is

considered as an instrument for relating those ideas and information.

WHOSE JOB?

Speech writing is an embedded responsibility of every officer in the

Public Service. Under the general rule, every officer is expected to have

some level of skills in communication to be able to write coherently,

including writing speeches, minuting and memos. This is a task that can

be performed through picking from old or previous speeches which can

be adopted, updated and upgraded. But care must be taken not to insert

ridiculous information like using old nomenclature.


64

TYPES OF SPEECH

THE BROAD TYPES OF SPEECH

Argumentative or Convincing Speech

This type strives on logic backed up with facts, figures and other

pieces of evidence, with a view to changing the perception of the

audience. Examples:

The need for a rise in workers‘ salaries

The need for America to remain in Iraq

Privatisation of Unity Schools in Nigeria

Informative or Expository Speech

It explains a process or an idea. It uses the methods of

presentation of facts with examples, illustrations, charts, comparisons or

description. Examples:

The loss of an aircraft from the Nigerian Air Space.

New drugs/tactics to combat HIV/AIDS scourge

Nigerian‘s launching of SAT-X

Persuasive Speech

This starts with a balanced argument supported with relevant facts,

quotations, anecdotes to appeal to listener‘s emotions, pride and

personal interest. This type of speech demands a clear logical

progression from one point or argument to the next. It is controversial in

nature. Take the following as examples:

Obama vs Hilary‘s views on foreign policy;


65

Yar‘adua‘s appealing speech against violence in the Niger

Delta.

Inspiring or Stimulation Speech

This stimulates and arouses the enthusiasm of the audience. It

deepens their feeling of respect and devotion. It spurs them to muster

courage and take action. Examples:

Mark Anthony‘s speech at Caesar‘s funeral in JULIUS

CAESAR;

An ‗Aluta‘ speech from a Students‘ Union Government (SUG)

to embark on a peaceful demonstration;

Speeches on the Nigerian Labour Congress (NLC) Day.

Entertaining Speech

This makes the audience relax. It contains humour and

amusement. It employs and explores various methods or avenues like

jokes, anecdotes, satire, information etc, arranged sequentially and

relevant to the occasion, and interesting to the audience. Examples :

Wedding Reception Speech by the Bestman.

A speech to arrest the attention of the audience by a

comedian.

STYLE AND LANGUAGE

In making a general survey or overview of Speech Writing, the

language used can be dissected in a rather lucid or clear and easy

manner in order to create a conducive environment of understanding of


66

the subject as clear as possible. In this regard, there is need to analyze

language habits with the main purpose of identifying , from the general

mass of linguistic features common to English as used on every

conceivable occasion, those features which are restricted to certain

kinds of social context. Those elements of style which make some

features to be used and become uniquely identifiable with an

individual(s) or social context, as opposed to other alternatives, and to

classify these features into categories upon a view of their function in the

social context. This is what stylistics is concerned with. Speech or

Writing which a person can single out from the general flow of language

and discuss can be regarded as features. In this context, a particular

word, part of a word, sequence of words, or way of uttering a word can

be ‗stylistically significant‘ or ‗stylistically distinctive‘ feature when it is

restricted in its occurrence to a limited number of social contexts.

STYLE

Communication is the key factor in Speech Writing. And,

achieving the essence of effective communication rests on sharing of

information to pave way for mutual understanding. Therefore, it is

necessary to have the following, in writing speeches:

The speech should be simple and clear;

It should be devoid of ambiguity;

It should contain interesting figurative language;

The language to use should be easy to understanding; and

The style to use should be memorable.


67

SPEECH CONSTRUCTION

INTRODUCTION

Subject – This requires the writer to introduce

the subject in the best way

possible because it opens the

business;

Focus to Audience – As a speech is written for

a particular audience, everything should

revolve around them because they are the focal

point;

It should arrest the audience‘s attention and

sustain their interest; and

The introduction can be started with a rhetorical

question or quotation.

BODY

This is where the speech is developed;

It is developed through the use of empirical

facts, figures, proofs etc.;

There should be a flow of ideas: one idea

presentation or point should lead to another;

and


68

All paragraphs should connect to the central

theme.

CONCLUSION

Generally, speech writing embraces some of the communication

activities of the staff in an organization. We must therefore, admit that it

is a duty that can be assigned to any officer. It is a function that does not

emphasize on specialization but one can gain experience over the

years. But good communication skills and educational qualification

remain an added advantage. It is however necessary for all officers to

learn the art of writing speeches.


69

SERVICING MEETINGS

1.0 Learning Objectives

At the end of the discussion, participants will be able to:

- organise a meeting;

- cover proceedings of meetings;

- write acceptable minutes of meeting;

- determine what should go into the minutes; and

- state the components of minutes of a meeting.

2. Introduction

Servicing meetings is a group activity, naturally co-ordinated by

one individual – the Secretary. The popular opinion is that only the

Secretary services meeting and that the Secretary can service meetings

without assistance from any one. This is not correct because, there are

so many things to be taken care of which one person may not do alone

with ease.

One may never be appointed secretary in his or her life, but

nobody can escape servicing meetings throughout life so long as he or

she belongs to an organized group or body. The knowledge of this

subject could be useful in any future occasion when any individual


70

suddenly becomes part of the team to work with a Secretary towards the

successful conduct of a meeting.

3. What is Servicing Meetings?

Servicing meetings means, performing functions without which the

body or committee or panel cannot function effectively.

For any meeting to hold successfully, there are activities required

to be carried out before, during and after the meeting. The performance

of these activities constitute servicing meeting.

4. Who Services Meetings?

The Secretariat, under the leadership of the Secretary services

meetings.

5. Activities Constituting Servicing Meetings

For any meeting to hold successfully, the following activities must

be carried out:

Pre Meeting Activities:

- Sending out of Notice of Meeting to members

- Securing of venue for meeting

- Circulation of minutes of meeting

- Preparation of Agenda and Briefs

- Processing of members‘ claims or allowances (if applicable)


71

- Arrangement on Refreshment for members (if applicable)

Activities During Meeting:

- Recording of proceedings

- Circulation of Attendance Register

- Supply of stationery items (if required)

- Provision of refreshments (if any)

Post Meeting Activities

- Production of Minutes of Meeting

- Custody of committee‘s documents

- Liaison with Chairman on committee matters

6. Minutes of Meeting

Definition: A minutes of meeting is a written record of the business

transacted at a meeting.

7. How are Minutes Written?

There are several views about how a minutes of meeting should

be written and they go as follows:

(i) Summary: Some school of thought say that minutes of

meeting should be a summary of the views and statements of

the members at a meeting.


72

(ii) Verbatim Recording: Some say, that minutes of meeting

should be verbatim recorded, that is, word-for-word transcription

of the discussions.

(iii) Conclusions Only: The third style is to record conclusions

only, so that the discussions and motions proposed and

seconded etc, are not recorded. This is typical of Board

meeting.

The best minutes are ―long enough to cover the essential points,

but short enough to be pleasing‖.

8. General Considerations in Writing Minutes of Meeting:

(i) Names of contributors: Unless in meeting of a Task – Group

(Task Force) names of contributors should not be written in

minutes of meeting. The contributor should be referred to as ‗a

member‘. Avoiding use of names eliminates dispute on who said

what at a meeting and the urge to say something in order to make

one‘s name written in the minutes of meeting.

(ii) Verbose Minutes: Minutes of meeting require economy of words,

not long sentences and repeated ideas. It should be straight to the

point.


73

(iv) Recording of Discussion: The Recorder at a meeting could

capture (write) the discussions in any form he prefers. It could be

written in short or long hand to be transcribed later. The rule is

that any minutes taken in short hand should be transcribed

immediately after the meeting, to prevent forgetting what a symbol

means.

(v) First Draft of Minutes: The rule in the Public Service is that

the draft of the minutes of meeting should be submitted to the

Chairman for vetting not more than 24 hours after the meeting.

(vi) Resolutions: It is essential to record the exact wording of a

Resolution. The Recorder should take care to make an exact

note of it at the meeting. If necessary, he or she should ask the

Chairman to repeat the decision (resolution), or, read out what

you understand to be the decision or resolution. Every

resolution must be recorded verbatim and it is best to put the

names of the proposer and seconder of motions.

When the voting is unanimous, this should be stated.

Sometimes a member will ask the Secretary to record the fact

that he voted against a certain Resolution; this must be

recorded.


74

(vii) Tenses in Minutes: The minutes of meeting is usually in reported

speech, hence, the tenses should be in the past, except where one

is quoting somebody‘s statements.

9. Components of Minutes of Meeting

In any minutes of meeting, there are required steps to be taken

and expected contents. The following constitute the components of a

minutes of meeting and in the order presented.

(i) Heading: Indicating the name of the body that met, the type of

meeting, the serial number of the meeting; the venue; time and

date of the meeting.

(ii) Attendance: Indicating those present, absent and apologies.

(iii) Commencement of Meeting

(iv) Presentation and Adoption of Agenda

(v) Reading and adoption of minutes of the previous meeting

(vi) Matters Arising (from the Minutes read)

(vii) All other matters on Agenda

(viii) Any other business

(ix) Adjournment

(x) Signature of Chairman and Secretary.


75

It is important to note that the Secretary is expected to sign the

minutes of meeting before sending them out or circulating. This is a

confirmation that the minutes being circulated emanated from the

Secretariat. The Chairman signs only after the minutes has been read,

corrected and adopted by members.

10. Essentials of Good Minute Writing:

Good minutes must be:

(i) Accurate: That is, it must provide a true, impartial and

balanced account of the proceedings.

(ii) Complete: That is, it must present the full record of the

meeting in clear, concise and unambiguous language.

(iii) Brief: That is, it must be as brief as possible and compatible

with the degree of accuracy required.

(iv) Methodical: That is, it must follow a method of presentation

which makes for rapid assimilation of the contents.

(v) Authentic: That is, it must be true. Nothing more than a

precise account of the proceedings of the meeting.

11. Preparation of Briefs:

Briefs are provided at meetings to enable members take decisions.

The Secretariat is expected to go through the Agenda items agreed


76

upon with the Chairman and see whether there are issues that require

further clarifications. It may be an issue raised or discussed at a

previous meeting but which must be concluded at the proposed current

meeting. The Secretariat has to provide a background reading on the

issue and circulate to members before the meeting, or before the issue

is brought up for decision. The background reading (Brief) would enable

those who had no clear idea about the matter, or those who were absent

at the meeting when the matter was first discussed, to take good

decision.

12. Format in Writing Minutes of Meeting:

Two formats are available. One is in tabular form, providing

headings under which items should be written. The items required

under the tabular format include: Topic, Discussion, and Action by.

Sometimes, a fourth column is useful, and that is on ‗Decisions‘.

The second format entails writing in normal prose. The choice of

format depends on the style adopted by the body or organization.

13. Chairman‟s Signature:

The Chairman at the meeting in which a minutes of meeting was

read, corrected and adopted, signs the portion for Chairman. It does not


77

matter if he or she was not the Chairman at the meeting when the

discussion was recorded.

14. Conclusion:

The minutes of meeting reflects the members of that body, hence,

every member should contribute towards giving the body a good image.


78

HANDLING OF OFFICIAL DOCUMENTS

Learning Objectives

At the end of the presentation, participants will be able to:

- Handle files in the correct way;

- Carry out proper receipt of correspondence;

- Determine appropriate classification of documents;

- Treat official documents with suitable attention; and

- Apply appropriate security measures on official documents.

2. INTRODUCTION

The work output in the Public Service is either in form of goods or

services. In order to have either of the outputs, a lot of resources are

utilized and as is usual with the Public Service, the use of these

resources is documented for proper accountability. In the process of this

documentation of use of resources, a large quantum and variety of

records are generated. These records form the life blood of an

organization in view of valuable information which they constitute.

Organisations, therefore, pay close attention to the numerous

processes through which their records are created or captured, used,

distributed, maintained and retrieved. In the conduct of Government

business, every transaction is conducted on paper and in files. The

papers generated must be classified, filed and stored to be retrieved


79

when needed. The place where filling, classification and storage take

place is called the Registry. These documents in the registry have

special ways of handling and processing to ensure that the system

works well.

(i) Handling of Official Documents and Records

(i) Handling of Files

Files are the medium through which various forms of written

communication are channeled from one officer to the other, and

eventually kept as records at the end of the transaction. There are three

(3) classes of files: the open; secret and confidential. When a file is

classified as ‗secret‘ or ‗confidential‘, it is handled with special care. In

handling of files, all in-coming and out-going files must be subjected to

due registration. The ‗Movement Register‘ so created is ruled in such a

way to have on record the file reference number; subject, destination

and date of movement.

Other functions performed with files include: The opening of new

files; merger of Temporary files with main files, as well as the re-

jacketing of worn out files. These are carried out in the Registry. The

Registry also creates Temporary (T) files for files not easily available or


80

lost. The Registry replaces files when they are lost and the process of

this replacement is as follows;

The ‗T‘ marked on the Temporary file is removed and on the front

cover of the file, the following are written: ―Duplicate, Original missing‖.

Thereafter, the numbering of pages of file previously done in pencil is

changed to red ink numbering.

(ii) Handling of Correspondence

Ideally, letters are received in the Registry, but in some

organizations, they are received in the office of the Chief

Executive, who directs each to the relevant officer.

Irrespective of where letters are received, the handling of

correspondence requires that:

(a) all letters received are recorded in the correspondence

register; and

(b) noting their Ref. No., subject, source and date of receipt.

The correspondence Register is critical in an office because it

shows the movement of all letters at each point in time.

3. Classification of Documents

Classification of documents is done in order to indicate or

determine the degree of secrecy required in the handling of any


81

document. Incoming and outgoing correspondence are classified

according to the degree of their importance and contents.

Classified correspondence means any correspondence, which has

been accordingly graded as: Restricted; Confidential; Secret; and Top

Secret. Each of the four classifications calls for the observance of

certain different security measures. The higher the classification, the

better the standard of protection required. The sole criterion for deciding

on which classification is appropriate is the degree of harm the

unauthorized disclosure of the information would cause.

The definitions given below were provided in the ‗National Security

Instruction‘ and must be followed by all government Ministries,

Departments and Agencies (MDAs).

(i) Top Secret

Information and material the unauthorized disclosure of

which would cause exceptionally grave damage to the

nation.

(ii) Secret


which would cause serious injury to the interest of the

nation.


82

(iii) Confidential

Information and material, the unauthorized disclosure of

which would be prejudicial to the interest of the nation.

(iv) Restricted


which would be undesirable in the interest of the nation.

Official documents should be given appropriate security

classification in accordance with their importance so that adequate

security protection is provided, to safeguard them against espionage,

subversion and sabotage.

With the exception of open files containing unclassified

correspondence, all other files are always kept under lock and key in a

restricted area for security reasons. All documents whether classified or

unclassified could be upgraded or downgraded depending on the current

situation and there are rules for custody of downgraded Top Secret

documents.

4. Priority Classification of Correspondence

Priority classification is done to indicate or determine the

speed for treating a document. Incoming mails are classified

immediately on receipt, to denote the degree of urgency and importance.


83

The different systems of denoting priority classifications of

correspondence in a government office can be grouped into three (3)

namely:

- Printed Slip

- Coloured Slip

- Red X

(a) Printed Slips

The slips have the following words boldly printed on them

- IMMEDIATE OR AT ONCE

- TODAY

- URGENT

(b) Coloured Slips

Another form of priority classification is by attaching red and

green/blue slips to papers requiring urgent attention.

A red slip denotes Priority, Immediate attention, while a

Green/Blue slip suggests urgent action.

(c) Red X Markings

Some departments denote priority classifications by the

marking of Xs with a red pencil or pen on the papers requiring

urgent action.


84

XXX mean Immediate, Priority , At Once

XX mean Today

X mean Urgent

Application of the classifications

Whether the system of classification is printed slips; coloured

slips or Red X; the classifications common to the three system are:

Immediate, priority, at once, urgent, today. The application of these

classifications is as follows.

(i) Immediate

If a slip denoting ―Immediate, ‘priority,‘ ‗At Once‘ or ‗Now‖ is

attached to a piece of work or document, it should be handed

personally to the officer required to take necessary action. He is

required to suspend action on any other work he was doing at the

moment and treat the work to which ‗immediate‘ etc is attached.

This classification takes precedence over all others. He should

after completing his action, return it by hand to the officer who has

ordered the work.

(i) Background Investigation

This measure is designed to know the prospective

employee‘s background in order to determine his suitability for


85

his/her proposed employment. Otherwise, he may jeopardize the

safety of the sensitive corporate documents and corporate goals.

(ii) Classification of Official Documents

Official documents are classified into Top Secret, Secret,

Confidential and Restricted. The classification will accord the

document with some measure of security. This prevents

unauthorized disclosure or accidental/intentional disclosure.

(iii) Control

There are various measures usually put in place to control

corporate sensitive documents. The measures are:

(a) The circulation of classified documents should be strictly

limited to those who need them for the effective

performance of their duties.

(b) Number outgoing correspondence or shade the

names/designations of addressees with special markers.

(c) Shred all waste papers.

(d) Electric typewriters with memory and computers should

be checked and memory cleared. In the case of

typewriter, remove and replace the battery.


86

(e) Control of photocopying machines. This is easily used for

illegal or unauthorized copying of classified documents.

(f) Taking of classified documents out of the office must be

discouraged. To be allowed only when it is essential to

the conduct of official business.

(iv) Transmission of Classified Documents

This has to do with the movement of documents or files from

one office to another. The following hints among others should

always be observed;

(a) All classified documents may be passed directly by hand from

one authorized officer to another. Or in a locked box or by

hand of an authorized messenger and addressed to an

individual by name.

(b) Classified documents may be forwarded in sealed envelope

(c) Do not discuss sensitive aspects of your work with outsiders or

even your spouse.

(d) In your ministry, department or agency, (MDA), discuss

classified matters only with officers who need to know such

matters for the effective performance of their official duties.


87

(v) Storage

By storage, we mean the manner by which official

documents are kept to discourage damage, theft, pilferage or

leakage. Chapter 6 of the Federal Republic of Nigeria Security

Instructions provides as follows:

(a) Top Secret and Secret documents should only be kept in

protected positions. A protected position is one which is physically

secure and which is guarded by patrols outside working hours.

(b) Classified material is at greater (much) risk when after working

hours, it is kept in various rooms throughout a large building. For

this reason, separate ‗classified‘ Registries should be established.

Top secret documents should always be kept in a safe overnight.

(c) Top Secret documents should be kept in safes, preferably fitted

with combination locks. Such safes should be secured to the floor

except overweight and size becomes advantageous. Secret and

confidential documents should be kept in metal filing cabinets fitted

with a metal bar covering all drawers and secured with a six-lever

padlock.

6. Good Records Keeping

Good Record Keeping entails the continuous process of:

receiving/collecting, classifying, storing, updating and retrieving

information about organisation‘s activities and employees.

For a record to be regarded as good, it should be accurate,

complete, economical, accessible, relevant, adaptable to changes,

simple to refer to and operate, properly indexed and classified.


88

Purpose of Keeping Good Records

- Calculation of staff benefits

- Showing details of progress in the service

- Determination of incremental dates

- Training and qualifications obtained

- Tax deductions, salary, leave and sickness etc.

- Discovery of Ghost Workers.

7. Management of Registries

Registries are principally of two (2) types: Open Registry and

Secret/Confidential Registry.

Open Registry

In this Registry, non-classified documents, correspondence

are stored and retrieved. Unauthorized persons and outsiders are

not allowed to enter open registry.

Secret/Confidential Registry

In some organizations, this is split into two: Secret Registry

and Confidential Registry. Documents kept in the Secret Registry

are highly classified and officers working there are required to

swear an oath in accordance with the Secret Act of 1962. Entry

into the Secret Registry is often tightly restricted. Documents are

stored away in steel cabinets with iron bar fitted across with locks.


89

Confidential Registry keeps mostly personnel files of staff of the

organization.

SYNDICATE EXERCISES.

1. What is the rationale for paying close attention to official

documents?

2. Discuss the process of opening, Temporary (T) Files and state the

conditions under which ‗T‘ files could be opened by the Registry.

3. Where should files be kept?

4. Why are documents attached with slips indicating Priority

Classification not put in officers‘ in-tray?

5. Should a secret document/information be made available to every

senior member of the department?

6. Why is ―Steel Cabinets with iron bar fitted across with locks‖

preferred to ―Steel cabinets without iron bar fitted across‖?

7. Do you consider Audio Tapes and Films as documents that could

be classified? What are your reasons for your answer?


90

AN OVERVIEW AND STRATEGIES FOR UNDERSTANDING THE NEW PUBLIC SERVICE RULES

1. PREAMBLE

The Public Service Rules is a Government document that specifies

the rights and privileges of a Public Servant. It is a book which contains

relevant information used in resolving the day to day issues relating to

appointments, discipline, allowances, salaries, leave, transport, legal

protection and retirement benefits provided by Government for its

employees.

2. HISTORICAL BACKGROUND

Since Independence in 1960, the document has undergone

several reviews. The first set of rules guiding the conduct of Civil

Servants was known as General Orders or G.O., it was first reviewed in

1974 when it transformed from the General Orders to Civil Service

Rules. Another review in year 2000 changed the document to Public

Service Rules to emphasize its applicability to all Government Agencies

and Parastatals outside the main Civil Service. The latest review

embarked upon in 2009 was recently approved by the President and

Commander-in-Chief of the Federal Republic of Nigeria. The main

thrust of the review was to remove obsolete rules, regulations and

procedures inimical to the success of the reforms in the Public Service.


91

The reviews also took cognizance of the provisions of extant Circulars,

Guidelines on Appointment, Promotion and Discipline issued by the

Federal Civil Service Commission, Pension Reforms, the Monetization

Policy of the Government, and Laws promulgated from time to time to

reflect the rapid changes in the economic and social development of the

country.

3. CONTENTS OF THE PUBLIC SERVICE RULES

The old edition had a number containing five digits, of which the

first two indicated the chapter, the third indicated the section within the

chapter while the last two gave the number of the individual rule within

the section, e.g. 14211 is the eleventh Rule in Section two of Chapter

Fourteen. The five digits system of numbering of chapters and sections

in the approved edition has been changed to six digit binary system.

The first two indicate the chapter, the next two, the section and the last

two, the rule number.

4. The current Public Service Rules (revised in 2008 is made up of 16

Chapters) within a General Appendix which contains Foreign Service

Regulations. The method of numbering like any other official document

is different. The old edition has five digits system of numbering which

has been changed to six digits binary system. The first two indicates the


92

chapter, the next two, the section and the last two, the rule e.g., 140106,

i.e., Chapter 14, Section 01, Rule 06. I would like to state here that,

amendment of the Public Service Rules would be made through

circulars which will be issued from time to time. It is also recommended

that the review will be carried out every five (5) years.

5. The Public Service Rules should however, be read in conjunction

with other extracts, regulations and documents in order to be an

effective Public Officer. These documents include:

(i) The Constitution of the Federal Republic of Nigeria

(ii) Existing Statutory Legislation – Federal

(iii) State Laws and Edicts

(iv) Financial Regulations;

(v) Circulars (Administrative, Policy, Treasury etc)

(vi) Guide to Administrative Procedures

For the purpose of this lecture, we shall pay attention to the general

principle of the Public Service Rules.

CHAPTER 1

6. INTRODUCTION

It shall be the duty of every officer to acquaint himself with the

Public Service Rules, other regulations and extant circulars. This Public


93

Service Rules apply to all officers except where they conflict with specific

terms approved by the Federal Government and written into the contract

of employment or letter of appointment. The specific and general

definitions of various words and terms employed in the Public Service

Rules are contained in this chapter. A few examples are indicated

below:

i. Emolument The total remuneration package as contained in the letter of appointment ii. Public Service A body or organ which enjoys continuity of existence. Essentially, it covers Ministries and Extra-Ministerial Offices iii. Established Post A post provided for under the personnel emoluments sub-head of the estimates

iv. Head of Department A Permanent Secretary/Head of Extra- Ministerial Office

v. Junior Officer Pensionable Officer on GL. 06 and below

vi. Officer When used without qualifications means staff in an established post, either on pensionable or contract terms

Notwithstanding that, throughout the Public Service Rules the

terms Officer and Staff are referred to in the masculine gender, the

provision of the Rules apply equally to female Public Servants.


94

CHAPTER 2

7. APPOINTMENT AND LEAVING THE SERVICE

The appropriate authority for appointment to Public Offices in the

Federal Public Service is the Federal Civil Service Commission, either

by a letter written under its direction or by formal agreement between the

officer and the Federal Government or its appointed agents. Permanent

Secretary/Head of Extra-Ministerial Officers are authorized to appoint

eligible candidates to posts in respect of which the powers of

appointment have been delegated to them.

8. APPOINTMENT

Appointment means the filling of vacancies by the appointment of

persons not already in the Public Service of the Federal Republic of

Nigeria. It, however, excludes transfer of officers from other Public

Service in the federation to the Federal Public Service.

9. TYPES OF APPOINTMENT

Direct appointment to the Federal Public Service may be in any of

the following categories:

(a) as trainees or pupils;

(b) on probation in a pensionable post;

(c) on non-pensionable contract to a non-pensionable post, or

against a pensionable post for a specific period;

(d) on temporary basis other than (c).


95

When a post proves difficult to fill, they shall normally be

advertised.

10. ELIGIBILITY FOR APPOINTMENT PSR 020205

To be eligible for appointment to the Federal Public Service, every

applicant must:

(a) not be less than 18 years and not more than 50 years of age;

(b) possess such minimum qualifications as are specified from

time to time;

(c) be certified by an authorized Health care provider as

medically fit for Government service; and

(d) possess a testimonial of good conduct from his last

employer; or

If not previously employed, from the last school or college

attended.

11. The Chapter also contains provisions which enjoin Public Officers

to sign an Oath of secrecy on Security Form 1 and prohibits them from

membership of any Secret Society. Any contravention shall be regarded

as an act of serious misconduct and may attract dismissal from service.

12. SECTION 4 – RULES FOR APPOINTMENT ON CONTRACT

PSR 020401 - A contract appointment is a temporary

appointment (which does not provide for the payment of pension) to a

post of the level to which appointment is made by the Federal Civil


96

Service Commission for a specific period as opposed to appointment

and temporary employment. The contract appointment must be

recorded in a formal document of agreement. The conditions of service

of a contract officer are those provided for in his/her contract only.

Nigerians may be appointed on contract if they are pensioners, 50 years

of age or over, possess specialized competencies, and such is in the

best interest of the service. Souses married to Nigerians should remain

on contract until granted Nigerian citizenship. Retired officers may only

be reemployed (on contract) into career posts on grade levels

immediately below that on which they retired.

13. SECTON 5 – TRANSFERS AND SECONDMENTS

PSR 020501 – Transfer is the permanent release of an officer from one

scheduled service to another or from one class to another within the

same service. Secondment means the temporary release of an officer

to the service of another Government, approved body or any recognized

international organizations for a specific period.

14. SECTION 6 – ACTING APPOINTMENT

PSR 020601 - When it is necessary that a particular duty post

(of status not lower than Senior Clerical Officer, GL. 06) should continue

to be filled at a time when no officer of corresponding substantive rank is


97

available for posting thereto, some other officers may, with the approval

of the Federal Civil Service Commission, be formally appointed by notice

in the Gazette to act in the duty post, and assume either fully or partly,

the duties and responsibilities thereof.

15. SECTION 7 – PROMOTIONS

PSR 020701 - Promotions shall be made strictly on the basis of

competitive merit from amongst all eligible candidates. The minimum

number of years are as follows:

GL. 06 and below - Minimum of 2 years

GL.07 – 14 - Minimum of 3 years

GL. 15 – 17 - Minimum of 4 years

All promotions are subject to satisfying minimum requirements declared

by the Federal Civil Service Commission and availability of vacancies.

16. SECTION 8 – LEAVING THE SERVICE

This Section contains provisions for the termination and

relinquishment of appointment during probationary period, resignation

and leaving the service on grounds of failing an examination or abolition

of office or re-organization. An officer who resigns will be liable to forfeit

all claims to vacation leave, and refund to the Government in full any

sum of money which he/she may be owing to Government. By virtue of


98

the provisions of regulation 15 of the Pension Reform Act 2004, all

previous pensionable service is forfeited on resignation.

17. PSR 020808

(i) Officers who fail promotion examinations on three (3)

consecutive attempts on the same grade and whose on-the-job

performance has been assessed to be below average shall be

required to leave the serve.

(ii) An officer whose service is no longer required in the event of

abolition of office, re-organization of the office or redundancy shall

be required to leave the service.

18. RULES RELATIONG TO PREGNANCY

A female staff that is pregnant is entitled to 16 weeks Maternity

Leave at a stretch with full pay. A medical certificate showing the

expected date of confinement must be presented not less than two

months before the date. The annual leave of that year will, however, be

regarded s part of the maternity leave. When the annual leave has

already been enjoyed before the grant of maternity leave that part of the

maternity leave equivalent to the annual leave will be without pay.

CHAPTER 3

19. INTRODUCTION

KNOWLEDGE OF DISCIPLINARY RULES PSR 030101


99

It shall be the duty of every officer to acquaint himself/herself with

the disciplinary rules and any other regulations in force.

20. DISCIPLINE

PSR 030201 – GENERAL INEFFICIENCY

General Inefficiency consist of a series of omissions or

incompetence the cumulative effect of which shows that the officer is not

capable of discharging efficiency the duties of the office he/she holds. It

shall be the duty of every superior officer to draw attention to

shortcomings in the work of an officer subordinate to him/her, while an

officer must have been warned on three occasions in writing before

proceedings for the removal of an officer for general inefficiency may be

commenced.

21. MISCONDUCT – PSR 030301

Misconduct is defined as a specific act of wrong doing or an

improper behavior which is inimical to the image of the Service and

which can be investigated and proved, it can lead to termination and

retirement. It includes:

(a) Scandalous conduct such as:

i. immoral behavior

ii. unruly behavior

iii. drunkenness

iv. foul language


100

v. assault and

vi. battery

(b) Refusal to proceed on transfer or to accept posting;

(c) Habitual lateness to work;

(d) Deliberate delay in treating official document;

(e) Failure to keep records;

(f) Unauthorized removal of public records;

(g) Dishonesty;

(h) Negligence;

(i) Membership of Cults;

(j) Sleeping on Duty;

(k) Improper dressing while on duty;

(l) Hawking merchandise within office premises;

(m) Refusal to take/carry out lawful instruction from superior officers;

(n) Malingering;

(o) Insubordination;

(p) Discourteous behavior to the public

22. SERIOUS MISCONDUCT PSR 030402

Serious Misconduct is defined as a specific act of every serious

wrong doing and improper behavior which is inimical to the image of the

Service, can be investigated and if proven, may lead to dismissal.

Serious acts of misconduct include:

(a) Falsification of records;

(b) Suppression of records;

(c) Withholding of files;

(d) Conviction on a criminal charge (other than a minor traffic or

Sanitary offence or the like);

(e) Absence from duty without leave;

(f) False claims against Government;

(g) Engaging in partisan political activities;


101

(h) Bankruptcy/serious financial embarrassment;

(i) Unauthorized disclosure of official information;

(j) Bribery;

(k) Corruption;

(l) Embezzlement;

(m) Misappropriation;

(n) Violation of Oath of Secrecy;

(o) Action prejudicial to the security of the State;

(p) Advance Fee Fraud (Criminal Code 419);

(q) Holding more than one full-time paid job;

(r) Nepotism or any other form of preferential treatment;

(s) Divided loyalty;

(t) Sabotage;

(u) Willful damage to Public property;

(v) Sexual Harassment; and

(w) Any other act unbecoming of a Public Officer.

23. The section contains provisions which preclude Public Servants

from lending money at interest, or guarantee or stand surety for money

lent on interest to any other person.

24. INTERDICTION PSR 030404

When a serious case that may lead to dismissal has been

instituted against an officer, the Permanent Secretary/Head of Extra-

Ministerial Office may interdict him/her on not more than half pay

pending the determination of the case. When an officer interdicted,

he/she shall cease to report for duty.


102

25. SUSPENSION PSR 030406

Suspension shall apply where prima facie case, the nature of

which is serious, has been established against an officer and it is

considered necessary in the public interest that he/she should forthwith

be prohibited from carrying out his/her duties. An officer on suspension

is precluded from the enjoyment of his/her emolument.

26. DISMISSAL PSR 030407

The ultimate penalty for serious misconduct is dismissal. An

officer who is dismissed forfeits all claims to retiring benefits, leave or

transport grant etc., subject to the provisions of the Pension Reform Act

2004.

27. ABSENCE WITHOUT LEAVE PSR 030413

Any officer who absents himself/herself from duty or travels out of

Nigeria without leave renders himself/herself liable to be dismissed from

the service, and the onus shall rest on him/her, to show that the

circumstances do not justify the imposition of the full penalty.

28. SERIOUS FINANCIAL EMBARRASSMENT PSR 030414

Where Serious Financial Embarrassment is caused by

imprudence or other reprehensible cause, the officer concerned shall be

liable to immediate dismissal unless he/she could prove otherwise.


103

29. OATH OF SECRECY PSR 030415

Every officer is subject to the Official Secrets Act (Cap. 335), and

all officers, employees and temporary staff who have access to

classified or restricted papers are enjoined to sign the Oath of Secrecy in

the appropriate form, unauthorized disclosure of official information is an

offence under the Public Service Rules.

30. PUBLICATION AND PUBLIC UTTERANCES PSR 030421

Except in pursuance of his/her official duties, no officer shall

without the express permission of his/her Permanent Secretary/Head of

Extra-Ministerial Office, engage in any publication or make public

utterances and allow himself/herself to be interviewed, or express any

opinion for publication on any question or a political or administrative

nature, or on matters affecting the Administration, Public Policy, defence

or military resources of the Federation or any other country.

31. POLITICAL ACTIVITIES PSR 030422

No officer shall, without express permission of the Government,

whether on duty or leave of absence:

(a) hold any office, paid or unpaid, permanent or temporary, in any

political organization;

(b) offer himself/herself or nominate anyone else as a candidate for

any elective public officer including membership of a Local

Government Council, State or National Assembly;


104

(c) indicate publicly his support for or opposition to any party,

candidate or policy;

(d) engage in canvassing in support of political candidates.

32. Public Officers are not prohibited from holding shares in both

public and private companies operating in Nigeria or abroad, except that

they must not be director in private companies. Private practice is also

prohibited, with exception granted to Private Medical Practitioners and

Law Lecturers in the Universities. The rules precludes Public Officer

form seeking influence of prominent persons in matter connected with

discipline, or with a view to obtaining consideration for appointment,

transfer, promotion or postings. Similarly, no officer may borrow money

either as principal or as surety, or in any manner place himself/herself

under a financial obligation to any person with whom he may likely have

official interaction. Public Officers are not expected to accept gifts or

presents, whether in the form of money or otherwise, from any person in

recognition or anticipation of service rendered or to be rendered by

virtue of his/her official position.

33. PROHIBITION OF BRIBERY AND CORRUPTION PSR 030434

In order to improve Public Service management and enhance

accountability and transparency, no officer shall receive any bribe or

engage in corrupt practices.


105

CHAPTER 7

34. MEDICAL AND DENTAL PROCEDURES

MEDICAL TREATMENT PSR 070206

Among other topics in this chapter are medical check-up,

procedure for medical check-up and medical treatment abroad.

Approval for some public officers, including officers of the Armed Forces

of the rank of Brigadier General (or its equivalent) and above, to receive

periodic medical check-up at Government expense abroad will be given

by the President and commander-in-Chief. In so doing, officers of the

Armed Forces of the rank of Brigadier-General (or its equivalent) will

submit to the President their applications through the appropriate

Service Chief. Approvals/rejection will be notified through the same

channel. Public Officers on GL. 12 – 15 will rcive medical check-up

once in a year subject to approval.

35. SICK LEAVE PSR 070316

The maximum aggregate sick leave which can be allowed an

officer, who is not hospitalized, during any period of twelve months shall

be forty-two (42) calendar days. Where such an officer have been

absent from duty on the ground of ill-health for an aggregate period in

excess of forty-two (42) calendar days within twelve calendar months,


106

the officer should be made to appear before a Medical Board with a view

to ascertaining whether he/she should be invalidated from Service. Sick

leave for a period up to three months in the first instance may be allowed

on the certificate of an approved Health Care Provider to an officer who

is hospitalized.

CHAPTER 9

36. PETITIONS AND APPEALS

PROCEDURE 090101

Every officer who has any representations of a public or private

nature to make to the Government should address them to:

(a) the Chairman, Federal Civil Service commission, in respect of

matters relating to appointments (including acting

appointments), promotion, transfer and discipline; or

(b) The Head of Civil Service of the Federation on matters relating

to other Conditions of Service, e.g. leave, passages,

allowances, pensions, gratuities, etc.

37. PETITION TO HEAD OF GOVERNMENT 090102

Any officer in the Federal Public Service may address the Head of

Government, in which case he/she must transmit such communication,

unsealed and in triplicate to any of the channels mentioned in the

preceding rule requesting that the petition be forwarded in due course to

the Head of Government. Every letter of document which may be

received by the Head of Government otherwise than through the proper


107

channel will be returned to the writer. The rule requiring transmission of

communications to the Head of Government through appropriate

channel is based on the strongest grounds of public convenience, in

order that all communications may be duly verified as well as reported

on or before they reach the Head of Government, it extends therefore to

communications relating to public affairs as well as to the concerns of

the writer.

38. SECTION 2 – PETITION RULES

DEFINITION 090201

(i) For the purpose of this section a ―petition‖ is a formal appeal to

ultimate authority that is to the Head of Government for special

consideration of a matter affecting an officer personally. It must

be distinguished from a letter of representation addressed to an

appropriate senior officer of Government in the normal way.

(ii) Without prejudice to their constitutional rights, officers should as

much as possible exhaust all avenues provided in the Public

Service Rules and Circulars for redress before proceeding to

courts;


108

39. APPLICATION 090202

Petitions by an officer (or by an ex-officer on matters relating to

his/her conditions of employment as an officer or his/her condition as a

pensioner of Government) must be submitted in accordance with, the

rules, set out in this section.

40. OUTSIDE INFLUENCE 090203

An officer must not attempt to bring political or other outside

influence to support his individual claims. If he/she is dissatisfied, the

proper course is to make representations to his/her immediate superior

officer or Permanent Secretary/Head of Extra-Ministerial Office. If

his/her representations are not successful, it is open to him/her to submit

a formal petition to the appropriate authority under Rule 090101.

41. ROUTING OF PETITION 090204

A petition must be submitted through the proper departmental

channels, namely through the petitioner‘s immediate superior officer and

the Permanent Secretary/Head of Extra-Ministerial Office, who will

forward the petition with his/her comments and recommendations to the

Chairman of the Federal Civil Service Commission or the Head of the

Civil Service of the Federation in accordance with administrative

instructions in force at the time. It is in the petitioner‘s interest that the


109

above-mentioned rule concerning the routing of a petition should be

strictly observed in order that the petition will be duly verified and

reported before it reached the final destination.

42. NUMBER OF COPIES 090205

A petition addressed to any of the channels mentioned in the

preceding rule must be submitted in duplicate and an advance copy may

be sent directly to the appropriate authority. In either case, one copy will

be retained by the Permanent Secretary/Head of Extra-Ministerial Office.

43. IDENTITY OF THE PETITIONER 090206

A petition must bear the full name, staff number, signature and

address of the petitioner. When written by a person other than the

petitioner, the signature and address of the writer must be included.

44. PETITION SUBMITTED ON BEHALF OF AN ILLITERATE

PERSON 090207

When a person submits a petition above his/her own signature on

behalf of an illiterate, the petition should contain a statement that he/she

has been asked to write on behalf of the illiterate.

DISQUALIFICATION 090208

(a) A petition which:

(i) does not comply with Rule 090201;


110

(ii) deals with a case in which legal action is pending in a Court

of Law;

(iii) is illegible or meaningless;

(iv) is worded in abusive, improper or foul language; or

(v) merely repeats the substance of a previous petition without

introducing new relevant matter, will not be entertained.

Delay to be explained

(b) A petition submitted more than six months after the decision

complained of has been given, will also not be entertained, unless

such delay is supported by valid reasons.

45. CONCLUSION OF PETITION 090209

A petition should be concluded by stating concisely the nature of

the redress sought, and a petition which exceeds in length of two pages

of foolscap must also include a summary of the reasons adduced in

support of the redress sought.

CHAPTER 10

46. TYPES OF LEAVE 100201

Annual Leave:

It is granted to an officer in accordance with his grade:

GL. 07 and above - 30 calendar days

GL. 04 – 6 - 21 calendar days

GL. 03 and below - 14 calendar days


111

47. CASUAL LEAVE

It is the absence of an officer from duty for a short period not

exceeding an aggregate of five working days within a leave year as may

be authorized by superior officer.

48. MATERNITY LEAVE FOR FEMALE PUBLIC SERVANTS

Government has approved 16 weeks Maternity Leave entitlement

with full pay to female Public Servants at a stretch, beginning not later

than 4 weeks from the expected date of delivery. A Medical Certificate,

indicating the Expected Date of Delivery (EDD) must be presented not

less than two months before that date. The annual leave for that year

will, however, be regarded as part of the maternity leave. Where this

annual leave has already been enjoyed before the grant of maternity

leave, part of the maternity leave that is equivalent to annual leave will

be without pay.

49. SICK LEAVE

Sick leave is the absence of an officer from duty on account of ill-

health as authorized by a healthcare provider.

STUDY LEAVE

In-Service training

Study leave with pay

Study leave without pay


112

OTHER TYPES OF LEAVE

Examination leave

Sabbatical leave

Leave on compassionate ground – 2 weeks

Pre-retirement leave

Leave on ground of urgent private affairs

Leave to take part in cultural or union activities

Leave of Absence with pay on ground of Public Policy

CHAPTER 13

50. ALLOWANCES KILOMETRE ALLOWANCE

It is paid to the following officers:

Newly appointed officers reporting for duty and officers on

transfer/posting

Retiring officers

Officers undertaking official assignment, using his/her

personal car

Rates PSR 130103

Ministers/Permanent Secretary - N150.00 per kilo

Officers on GL. 15 – 17 - N75.00 per kilo

Officers on GL. 07 – 14 - N55.00 per kilo

Officers on GL. 06 and below - N35.00 per kilo

51. DISENGAGEMENT ALLOWANCE:

It is paid to officers proceeding on retirement from service at

uniform rates of 5% of annual basic salary.


113

52. 1ST 28 DAYS ALLOWANCE FOR NEWLY APPOINTED AND NEWLY POSTED OFFICERS.

Newly appointed officers, officers on transfer/posting from

cities different from their place of domicile shall be entitled to

transfer fare for self, spouse and not more than four (4)

children. In addition, they shall be eligible for hotel

accommodation for the first 28 days or an allowance for the

first twenty eight days in lieu of hotel accommodation at the

following rates:

Permanent Secretary - N20,000.00 per night

Officers on GL. 15 -17 - N13,000.00 per night

Officers on GL. 07 – 14 - N9,000.00 per night

Officers on GL. 06 and below - N3,000.00 per night

Duty Tour Allowance

Ministers/HCSF/SGF - N35,000.00

Permanent Secretaries - N20,000.00

Officers on GL. 15 – 17 - N16,000.00

Officers on GL. 07 – 14 - N12,000.00

Officers on GL. 06 and below - N 5,000.00

53. TRANSPORT ALLOWANCE AND LOCAL RUNNING

(a) All officers are entitled to air fare depending on the

exigencies of duty and with the approval of the Accounting

Officer.


114

(b) Transport Allowance shall be paid to all officers when

traveling to towns and cities where air transport services do

not exist at the rate of N20.00 per Kilometre.

(c) For local running, officers shall be entitled to 30% of Duty

Tour Allowance (DTA) in addition to airport and taxi fare at

the prevailing rates.

54. ESTACODE ALLOWANCE

Ministers/SGF/HCSF - USD 900

Permanent Secretaries - USD 600

Officers on SGL. 15 – 17 - USD 425

Officers on SGL. 07 – 14 - USD 381

Officers on GL. 06 and below - USD 206

An officer who is required by Government to proceed to a foreign

country on duty or on an approved course of instruction will be eligible

for a warm clothing allowance of US$720.00.

55. LOCAL COURSE ALLOWANCE

Courses Not Exceeding 28 Days

GL. 16 – 17 - N5,000 per day

GL. 14 – 15 - N3,000 per day

GL. 12 – 13 - N2,500 per day

GL. 09 – 10 - N2,000 per day

GL. 07 – 08 - N2,000 per day

GL. 04 – 06 - N1,000 per day

GL. 01 – 03 - N600 per day


115

56. Courses exceeding 28 days

Where lodging and boarding are not provided

GL. 16 – 17 - N5,000 per day for 1st 28 days and N500 for

each day thereafter.













PROJECT ALLOWANCE

Training for 1 year and above - N20,000

Training below 1 year - N10,000

BOOK ALLOWANCE

Training for 1 year and above - N20,000

Training below 1 year - N10,000

57. RESPONSIBILITY ALLOWANCE

Confidential Secretaries/Typist attached to Chief Executive and others

not below grade salary 17 are entitled to:

Chief Confidential Secretaries - N50,000 per annum


116

Asst. Chief Confidential Secretaries - N30,000 per annum

Confidential Secretaries and Typists - N20,000 per annum

58. OVERTIME ALLOWANCE

It shall be paid to officers on GL. 14 and below

Payment of overtime shall be made for time worked in excess of

the normal working hours (8.00 a.m. – 4.00 p.m.)

Payment of overtime allowance on normal working days shall

be at the rate of 0.7% of the monthly consolidated salary of an

officer, subject to a maximum of 45 hours in one month. Hours

worked on work-free days will be paid at the rate of ½ of the

normal overtime rate while the rate shall, on public holidays be

double of the normal overtime rate.

All applications for payment of overtime allowance must be

approved by the Accounting Office/Chief Executive

59. UNIFORM ALLOWANCE

Nurses and midwives - N20,000 per annum

Fire Officers - N25,000 per annum

It is paid on first appointment or promotion to any of the post listed

above.

60. SHIFT DUTY ALLOWANCE

Officers who perform shift duties and are not Health Professionals

shall be paid Shift Duty Allowance at the rate of 6.0% of their

monthly consolidated salaries.

61. RESETTLEMENT ALLOWANCE, FORMALLY KNOWN AS DISTURBANCE ALLOWANCE

The allowance covers:


117

Transfer of officer from one station or other Government to another

during service is a tour of service. The allowance shall be paid at the

rate of 2% of an officer‘s annual emolument. An officer whose transfer is

at his request shall only be entitled to transport allowance and not

resettlement allowance.

62. TEACHING ALLOWANCE

Part time Teacher/Instructor (members of staff) is entitled to N500

per hour.

Part time Teacher/Instructor (none staff) is entitled to N500 per

hour.

House master/mistress is eligible for allowance at the rate of N500

per month.

Science/Mathematics Teachers are eligible for

Science/Mathematics Teaching allowance at the rate of N750 per

month.

Laboratory attendant working in the evening class section of the

Institution in addition to his normal duties is entitled to allowance

rate of N100 per month.

CHAPTER16

63. APPLICATION OF THE PUBLIC SERVICE RULES TO FEDERAL GOVERNMENT PARASTATALS

SECTION 1 – GENERAL

DEFINITION 160101

A Parastatal is Government-owned organization established by

statute to render specified service(s) to the public. It is structured and


118

operates according to the instrument establishing it and also comes

under the policy directives of Government.

160102 Parastatals shall be classified into four (4) categories as follows:

(i) Regulatory Agencies;

(ii) General Services;

(iii) Infrastructure/Utility Agencies;

(iv) Security Agencies.

64. EXISTING RULES/CONDITIONS OF SERVICE 160103

Parastatals are to retain and improve existing rules, procedure and

practices in their establishments and ensure that there are no

deviations from the general principles contained in the Public

Service Rules. For example variations in probationary periods and

maturity periods‘ for promotion only reflect organizational

peculiarities and not inconsistencies with the Public Service Rules.

However, in the absence of internal rules and regulations on any

matter, the relevant provisions of the Public Service Rules shall

apply.

65. SECTION 2 BOARDS/COUNCIL MATTERS

FUNCTIONS OF BOARDS/COUNCIL 160201

(a) Statutory Boards/Councils shall set operational and

administrative policies in accordance with Government policy

directives and supervises the implementation of such


119

policies. The administrative policies may include those

relating to appointment, promotion and discipline of staff.

(b) A Board shall not be involved directly in the day to day

management of a Parastatal only.

(c) A Minister exercise control of Parastatals at policy level

through the Board of the Parastatal only.

66. PRIVILEGE OF MEMBERS OF BOARD 160201

Accommodation shall not be provided to any Part-time member of

a Board on a permanent basis. No part time member of the Board

shall be allowed to retain official vehicle for the use on a

permanent basis and regulations on any matter, the relevant

provisions of the Public Service Rules shall apply.

67. SECTION 3 – APPOINTMENTS AND PROMOTION

AUTHORITY FOR APPOINTMENT 160301

All appointments to public offices, both senior and junior, in

Federal Government Parastatals shall be made on the authority of the

Boards/Councils within the approved manning levels.

68. APPOINTMENT 160302

Appointment into all grades in Parastatals shall be need based

and subject to the approval of the Supervisory Boards/Councils. Such

appointments shall be made through a fair and open selection process

that ensures merit, credibility and equal employment opportunity for all


120

with due regard to the Federal character principle. Eligibility for

appointment under this rule shall be in accordance with the provisions of

Public Service Rules 020205, subject to the fact that reference made in

Rule 020205 to the HCSF shall not apply to Parastatals.

69. AUTHORITY TO APPROVE PROMOTION 160303

The Board/Council of a Parastatal shall approve all promotions without

prejudice to its powers to delegate.

70. ELIGIBILITY FOR PROMOTION 160304

The provisions of PSR 020701 (b) and (c) on eligibility for

promotion shall apply to all Parastatals, without prejudice to a

Parastatals, without prejudice to a Parastatals conditions of service.

71. SECTION 5 – DISCIPLINE

AUTHORITY TO DISCIPLINE 160501

The power to exercise disciplinary control over officers in

Parastatals is vested in the supervisory Boards/Councils in accordance

with their respective conditions of service.

72. GENERAL APPLICATIONS 160502

The provisions of Sections 2 to 6 in Chapter 3 of the Public

Service Rules shall guide all Parastatals in addressing disciplinary

matters provided that where reference to the Federal Civil Service


121

Commission, Head of the Public Service of the Federation or the

Permanent Secretary, the Board/Councils shall perform such functions.

73. SECTION 6 – PETITIONS AND APPEALS

PETITION TO HEAD OF GOVERNMENT 160601

In consonance with Section 2 of Chapter 9 of the Public Service

Rules an officer of a Parastatal who wishes to make a representation to

the Head of Government shall route such representation through the

proper Departmental channels, namely: the petitioner‘s superior Officer;

the chief Executive Officer; the Board/Council and the supervising

Ministry of the organization.


122

PUBLIC SERVICE FINANCIAL REGULATIONS

Learning Objectives At the end of this presentation, participants will be able; to appreciate the usefulness of regulations in relation to public

financial transactions instead of arbitrariness understand the various laws behind the regulations know the responsibilities of various financial authorities and

individuals in the Public Service to facilitate the implementation of the various regulations in their

workplaces ensure the availability of the booklet in their offices as constant

reference material assist in meeting the recording, analyzing and reporting

requirements demanded by the Financial Regulations. INTRODUCTION

In his preface to the 2000 edition of the Financial Regulations, the

former president General Olusegun Obasanjo remarked that ―The

complexity which Government business is expected to assume under

this administration has made it necessary to take a closer look, once

again, at the Financial Regulations by which Government finance and

accounting procedures are regulated. This review is necessary for any

Administration moreso, for the Democratic Administration to usher in a

great and dynamic economy, ensure a just and egalitarian society and

above all to enhance transparency and public accountability‖. That aptly

summarizes the reasons why Financial Regulations are essential

because where there are no express rules governing anything

arbitrariness reigns and anarchy will eventually result. Financial

Regulations are meant for all public officers and are therefore the

financial Bible/Koran of public officers.


123

The Accounting Officer in charge of each ministry, department and

agency (MDA) has the task of safeguarding public funds and ensuring

the regularity and propriety of expenditure under his control. This

module is therefore designed to take participants through essential parts

of the financial regulations.

CONCEPTS CLARIFICATION:

PUBLIC SERVICE

In a recent paper presented at the Administrative Staff College of

Nigeria, (ASCON), by Dr. Goke Adegoroye, Director-General of Bureau

of Public Service Reforms then, the term ―Public Service‖ was defined

as ―agglomeration of all organizations that exist as part of government

machinery for the delivery of services, ― which to him included:

(i) The Civil Service- the career personnel of the Presidency, the Ministries, the Extra – Ministerial Departments, and the Services of the National Assembly and the Judiciary.

(ii) The Armed Forces (iii) The Police and other Security Agencies, Educational

Institutions, Research Institute etc.

FINANCIAL REGULATIONS

Financial Regulations in the Public Service can be described as

rules and regulations which govern the acquisition, recording, utilization

and accounting for and control of Public funds and resources of

government to achieve state objectives. These rules and regulations are

usually brought together in booklet or manual form which is called

―Financial Regulations‖ at Federal level, Financial Instructions at state

level and Financial Memorandum at Local Government level.

The provisions of this book are so important that they become

standard against which all financial activities are measured and judged.


124

For example in auditing all public service organizations the Auditor-

General or his agents rely on the provisions of this book to determine

acceptable or unacceptable financial transaction(s) and/or practices(s).

To emphasize this, the President in his Preface to the 2000

edition, remarked that ―the Financial Regulations is issued on my

instruction………. to underscore my concern for restoration of rules and

regulations and the need to adhere strictly to them in the conduct of

Government business particularly in the control and Management of

public funds and resources of government.‖

OBJECTIVES OF FINANCIAL REGULATIONS

Financial Regulations are issued to: (i) guide the day – to – day financial operations of

Government Ministries, Extra Departments, Agencies and parastatals.

(ii) ensure appropriate system of information flow from Management to finance and accounts staff.

(iii) ensure prudence in carrying out government business. (iv) provide common standard, procedures and guides by

which auditors and Treasury Inspectors can ascertain that Ministries are able to control and maintain up – to date records of financial transactions.

(v) promote fiscal accountability, Management accountability and programme result accountability in Government financial Management and control.

SOURCES OF FINANCIAL REGULATIONS

In paragraph 4 of Part I of chapter 1 of the Financial Regulations, it

is stated that ―the Minister of Finance shall issue from time to time

Financial Regulations in accordance with existing policies and laws.‖

This simply implies that the Financial Regulations are derived from

existing laws and policies governing finances of government at the time

of issue. Such laws and policies include:


125

(i) The constitution of the Federal Republic of Nigeria, 1999 (ii) Finance (control and Management) Act 1958 (iii) The Audit Act 1956 (iv) Allocation of Revenue Act 1981 (v) The Public Service Rules (vi) The Anti – corruption. Law of the Federal Republic of

Nigeria 2000 (vii) Treasury and Finance Circulars (viii) Head of Service circulars (ix) Appropriation Acts (x) Supplementary Appropriation Acts (xi) Accounting codes, standards and Internal Audit Guides of

the organizations (xii) Special Instructions from authorized sources including

Departmental circular. (xiii) Public Procurement Act 2007.

FINANCIAL AUTHORITIES

At the apex of financial authorities in the Public Sector is the

National Assembly which approves the annual budget. This body is

followed closely by Federal executive council, the president, ministers,

permanent secretaries (Accounting officers) Chief executives of

parastatals (Accounting officers) Auditor-General, Accountant-General

etc. All are assigned special responsibilities in the management of

public funds. These responsibilities are spelt out in the Financial

Regulations.

(a) Office of the Accountant-General of the Federation:

The following are the key roles and responsibilities of the

Accountant-General of the Federation:

i The Accountant-General of the Federation is the head of the Federal Government accountant services and the Treasury.

ii He serves as the Chief Accounting Officer of the receipts and payments of the Government of the Federation.


126

iii Supervises the accounts of the Federal Ministries and Extra-Ministerial Departments, through the Inspectorate Department.

iv Collates, presents and publishes statutory financial statements of accounts required by the Finance Minister.

v Maintains and operate the accounts of the Consolidated Revenue Fund, Development Fund, Contingency Fund and other public Funds and provides cash-backing for the operations of Government.

vi Manages Federal Government Investments through MOFI- Ministry of Finance Incorporated.

vii Maintains and operates the Federation Account. viii Establishes and supervises Federal Pay Offices in each

state of the Federation.

(b) Treasury Accountants

Treasury Accountants are posted to every Ministry to enforce

compliance with the provisions of the Financial Regulations. Their

roles include assisting to improve the quality of financial

management and control in the public sector.

(c) Treasury Inspectorate

The Chief Accounting Officer of Government who is the

Accountant-General of the Federation has a Treasury Inspectorate

Department, the duties of which include inspection of the books

and records of the accounts of Ministries etc. to ensure compliance

with financial regulations. The Department is empowered to

investigate cases of fraud or any breach of regulations and to

recommend disciplinary actions against all those who may be

implicated. It is also empowered to demand for any financial

information, which the Ministries are mandated to supply.


127

(d) Auditor-General for the Federation

(i) The Auditor-General for the Federation is the officer responsible for the audit and report on the public accounts of the Federation including all persons and bodies entrusted with the collection, receipt, custody, issue, transfer, delivery of government property and for the certification of the annual accounts of the Federal Government. In this respect, the Auditor-General for the Federation is the external auditor to the Federal Government.

(ii) He examines and ascertains all accounts relating to public funds and property as to whether in his opinion:

(a) the accounts have been properly kept… (b) all public monies have been fully accounted for. (c) Monies have been expended for the purpose for which

they were appropriated and payments fully authorized (d) Essential records are maintained and the rules and

procedures applied are sufficient to safeguard and control government funds and property.

(e) Accounting Officer The Accounting Officer as designated in the Financial Regulations

is the Permanent Secretary of a Ministry or the Head of Extra-

Ministerial Department entrusted with the financial stewardship of

safeguarding the public funds and the regularity and propriety of

the expenditure under his control.

The functions include briefly: i ensuring that proper budgetary and accounting systems are

established in his ministry to ensure and enhance internal control,

accountability and transparency; ii ensuring that management control tools are put in place to

minimize waste and fraud. iii ensuring that all government revenues are collected and

paid into the Consolidated Revenue fund promptly. iv rendering monthly and other periodical accounting returns

and transcripts to the Accountant-General.


128

v ensuring prudence, safety and proper maintenance of all government monies and assets under his custody.

vi ensuring accurate and prompt collection of, and accounting for, all public monies received and expended.

vii responsibility for answering all audit queries pertaining to his Ministry or Office.

In addition, the Accounting Officer shall be held personally

and pecuniarily responsible for all financial wrongdoings in

his Ministry.

(f) Sub-Accounting Officer

This is an officer, other than the Accounting Officer, who is

entrusted with the receipt, custody and disbursement of

public money and who is required to keep one of the

recognized cash books (main Cash book, Revenue Collector

Cash book and Petty Cash book), together with such other

books of accounts as my be prescribed by the Accountant-

General.

(g) Revenue Collector

Revenue collector is an officer, other than a sub-accounting

officer, entrusted with an official receipt, license or ticket

booklet for the regular collection of some particular form of

revenue and who is required to keep a cash book.

(h) Imprest Holder

Imprest holder is an officer, other than a sub-accounting

officer, who is entrusted with the disbursement of public

money for which vouchers cannot be presented immediately

to a sub-accounting officer for payment. He keeps a petty

cash book.


129

BUDGET

We have just discussed that at the apex of the financial authorities in

the public sector is the National Assembly. The main function of the

National Assembly with regards to Public Finance is the approval of the

annual budget, followed by oversight/monitoring functions. In addition

they also exercise control function through the instrumentality of the

Public Accounts Committee (PAC).

Suffice to mention here that Budget is made up of Revenue and

expenditure. While revenue can be broken into capital and Recurrent,

Expenditure can also be divided into Recurrent and Capital. All the

chapters in the Financial Regulations deal with these two areas. On the

revenue side chapter 3 of Financial Regulations (2000) provides that

receipt shall be issued for every revenue collected on behalf of

government while on the expenditure side, Financial Regulations 401

states that Estimates and Appropriation Act will be held to limit and

arrange the disbursement of the funds of the Federal Government and

no expenditure may be incurred except on the authority of a warrant of

the Minister of Finance.

ACCOUNTABILITY AND PROBITY

The Financial Regulations are expected to aid the achievement of

probity and accountability in Government financial transactions.

According to FR.101, the need and responsibility to establish a sound

financial and accounting system; to ensure optimal utilization of scarce

resources and strict compliance with financial regulations in the

achievement of Government objectives rests principally with the

Accountant-General of the Federation, and also with the Accounting


130

Officers (i.e. the Permanent Secretaries/Chief Executives of

Ministries/Agencies).

The Accountant-General of the Federation is the Chief Accounting

Officer for the receipts and payments of public funds. He is also

responsible for the general supervision of the accounts of all ministries,

extra-ministerial departments, agencies and all arms of government

within the Federation.

REVENUE ACCOUNTING

The year 2000 Revised Financial Regulations comprise two broad

sections – viz, finance and Accounts contain codes of regulations made

up of rules which specify actions acceptable and those not acceptable in

the collection, documentation, custody, disbursement etc. of public

funds. All Federally collectable revenue as spelt out in the constitution of

the Federal Republic of Nigeria, are paid into the Federation Account,

before they may be shared out for use by the various tiers of

Government. The share of the Federal government is paid into the

Consolidated Revenue Fund Account of the Federation (CRF).

The Financial Regulations require that all revenue collected must

be receipted, recorded in the appropriate revenue books and banked.

The financial Regulations also spell out funds disbursement procedures.

In this respect, the Annual Estimates and Appropriation Act determine

the limits and arrange the disbursement of the funds of the Federal

Government. Therefore, no expenditure may be incurred except on the

authority of appropriate organ or individual as provided in these financial

regulations (FR 401). All expenditure warrants are signed only after the

National Assembly has passed the Appropriation Bill into an Act.


131

RENDITION OF MONTHLY ACCOUNTS

In compliance with the provision of Financial Regulation No. 208,

(2006) all Federal Ministerial/Extra-Ministerial Departments and Self

Accounting Units are mandated to submit their transcript of accounts

and returns to the Office of the Accountant-General of the Federation not

later than 14th day of the following month of the accounts. In the case of

Nigerian Missions abroad, they are to ensure the dispatch of their

accounts within the same period by diplomatic bag or registered Mail.

THE NATURE OF THE TRANSCRIPT OF ACCOUNT

The monthly transcript of accounts expected to be submitted to

Office of the Accountant General of the Federation by each

Ministry/Extra-Ministerial Department consist of:

(a) Original Cash Book Foils arranged in day – to day order, with cash specifications on the last page.

(b) Original and duplicate copies of all Receipts and Payment Vouchers.

(c) Certificate or Statement of Cash and Bank Balances (d) Bank Reconciliation Statement

There is also a list of accounting returns which Ministries/Extra-Ministerial offices or self-accounting units are expected to submit to the Office of the Accountant-General of the Federation on a monthly basis.

PURCHASE CONTROL OBJECTIVES

The Control Objective for purchases and contracts are mainly to

ensure that: -

(i) all purchases are properly authorized and approved before goods or services are ordered; and that goods received or services rendered are properly checked and authorized prior to acceptance of payment;


132

(ii) liability for all purchases is accurately recorded in the books of accounts and that suppliers received payments in accordance with agreed terms; and

(iii) materials purchased and services rendered are actually received and properly analysed and that the appropriate stock, expenses or fixed assets records are up-dated.

PAYEMENTS CONTROL OBJECTIVES (i) to set up liability for payments for goods supplied or services

rendered at any given date. (ii) to ensure strict control over payments : and (iii) to accelerate settlement of accounts.

SALARIES AND WAGES CONTROL OBJECTIVES

In relation to payrolls, the control objectives are:- (i) to ensure that only bonafide employees are remunerated for

services; (ii) to ensure that amounts paid to employees are properly

authorized and relate to service actually rendered, e.g. overtime allowance: and

(iii) to ensure that the computation of payments is properly carried out and all statutory deductions have been properly calculated.

CONTROL OBJECTIVES FOR FIXED ASSETS Fixed Assets include:

Land and Buildings;

Plant, Machinery and equipment;

Motor Vehicles;

Furniture, Fixtures and Fittings; and

Tools. The control objective is mainly to ensure that capital expenditure is properly incurred and recorded by maintaining Fixed Assets Register.

LOANS AND ADVANCES CONTROL OBJECTIVES To ensure that:

(i) all loans and advances are properly approved and authorized before payment is made;

(ii) proper records are maintained for all loans and advances;


133

(iii) all loans and advances made are recorded as and when due; and

(iv) no new loans and advances are given before existing loans and advances of the same class are fully recovered.

All the above measures involve a sound accounting system to

permit effective administrative control of funds and operations, costs

effectiveness and internal audit appraisal. Internal and Federal Auditors

should ensure that the accounts of the different organizations are

maintained in ways that will facilitate periodic reviews.

ENFORCEMENT OF COMPLIANCE WITH FINANCIAL

REGULATIONS PUBLIC ACCOUNTS COMMITTEE

In the past years, the Public Accounts Committee (PAC) was

established to compel Accounting Officers to account for their

stewardship and explain where non-compliance with the financial

regulations has been noticed.

INTERNAL AUDIT

Internal Audit is part of Internal control which is defined as ―The

whole system of control, financial and otherwise, established by the

management in order to:

(i) carry on the business of the enterprise in an orderly and efficient manner;

(ii) ensure adherence to management policies; (iii) safeguard the assets; (v) secure as far as possible the completeness and accuracy of

the records‖

Establishment of Internal Control is the responsibility of top

management hence Financial Regulations 2001 (ii) (2006) says the

Accounting Officer of a ministry or Extra-Ministerial Department shall

ensure that an Internal Audit Unit is established to provide a complete


134

and continuous audit of the Accounting records of revenue and

expenditure, plants and stores etc.

FEDERATION ACCOUNT

It is a distributable pooling (special) account in which all revenues

collected by the Federal government are paid except the proceeds of tax

under Pay-As-You-Earn system from Armed Forces personnel, Police

personnel, Foreign Service officers and FCT-Abuja residents and other

prescribed independent revenues. It is distributable among the Federal

Government, State Governments, Local Governments and Special

Fund.

CONSOLIDATED REVENUE FUND

It is the Federal Government Account established by the

Constitution which is not distributable but solely for the Federal

Government. The sources include:

- The share from Federation Account

- Some direct taxes.

- Licenses, fess and other internal revenue

- Earnings and sales,

- Rent on government property, etc.

All recurrent expenditure including consolidated salaries of

Auditor-General, Chief Justice, President etc. are charged to

it.

DEVELOPMENT FUND AND CONTINGENCY FUND

Development Fund is a capital projects account where all revenue

meant for capital projects are paid into, while the contingency funds are

meant for unforeseen circumstances like the recent bomb explosion in


135

Lagos. Funds are often transferred from the Consolidated Revenue

Fund to each of them.

RECURRENT EXPENDITURE

Recurrent expenditure is disbursed from the Consolidated

Revenue fund and no such expenditure will be incurred except on the

authority of a warrant duly signed by the Minister of Finance.

CAPITAL EXPENDITURE

The Capital Expenditure Warrants are called Development Fund

Warrants.

IMPRESTS

Imprest is applicable to all sums advanced to officers of the

government to meet expenditure under the current estimates for which

vouchers cannot be immediately presented to the Accountant-General or

sub-accounting officer for payment. The imprests are issued by the

Accountant-General and the Accounting Officers or self-accounting

ministries.

The authority for issuing imprest is conveyed in the Annual

General Imprest Warrant issued by the Minister of Finance. The Ministry

that wants such imprest system should apply in advance so that it can

be incorporated in the year‘s budget.

TYPES OF IMPREST:

i Standing Imprest: It is the imprest that may be replenished from time to time during the financial year by submitting paid vouchers for reimbursement and fully retired at the end of the financial year.

ii Special Imprest: it is granted for a particular purpose which

must be retired in full within the period allowed or when the service is completed.


136

Every imprest holder must maintain an imprest Cash Book.

DEPOSITS

Deposit is the money/cash which belong to people, placed under

government custody for safe keeping. Deposits may not be accepted

except it is in line with the Accountant-General‘s requirement.

Unclaimed salaries, unspent balances of voted expenditure, as

well as sums due to merchants shall not be placed on deposit.

Those that can be placed on deposit include those moneys kept

for Pensioners, excess revenue discovered of which the source is not

immediately known, refundable tenders‘ application fee etc.

A deposit ledger book has to be kept and well maintained for

deposits and all deposits must be receipted.

Except those of prisoners, and deposit that is kept beyond two

years should not be paid without clearance from the Accounting Officers.

Any deposit beyond 5 years, except for prisoners, should be

reported to the Accountant-General by the depositor.

GENERAL RULES GOVERNING PAYMENTS

The means of paying out government money is the payment

vouchers No payment may be made without a voucher Financial

Regulations: (FR 601)

- All payments above N10,000,000 must be made by cheque (Financial Regulations (FR 618)

- On no occasion should cheques be issued for payment for jobs performed or goods not yet supplied FR 804 (II). The only exception to this is imprest. Then one may ask what of I. O. U.? The truth is that I.O.U. is illegal. It is not provided for in any of our regulations.

- Payroll must be hand-written – FR 1902


137

ADVANCES Advances are money given to public officers which are not yet

expenditure but may or may not become expenditure in future. There are two type of advances – Imprest advance (Non Personal Advances) and Personal advance. IMPREST ADVANCE

Imprest advance is defined in Financial Regulations 1101 as sum

advanced to an officer of the government to meet expenditure under the

current Estimates for which vouchers cannot be presented immediately

to the Accountant-General or a sub – Accounting Officer for payments.

Imprest advances can be categorized into two namely:

(i) Standing imprest (ii) Special imprest

Standing imprest is given to an officer to meet expected

expenditures and can be reimbursed from time to time and must be retired on or before 31st December of every year. On the other hand Special imprest is granted for a particular purpose which must be retired in full within the period allowed when the service is completed. PERSONAL ADVANCES

Personal advances are loans to individual officers in the

employment of government which have to be ―retired‖ by monthly

installmental repayment from Salary. Personal advance may only be

granted on the authority of these regulations and the Public Service

Rules. Some of the personal advances approved by Financial

Regulations & Public Service Rules include:

(i) Salary Advance (ii) Motor Vehicle advance (iii) Motorcycle (iv) Bicycle advance (v) Spectacle advance


138

(vi) Correspondence advance (vii) Refurbishing advance

Each personal advance has its own conditions for granting it in

addition to the general condition that on no account should advance/s be

granted in such a way that an officer will be made to refund more that

2/3 of his salary in any month as it could lead to Financial

embarrassment which is a serious misconduct under the Public Service

Rule. Further more no advance should be given if the previous one has

not been retired completely.

LOSS OF FUNDS FR 1501

Loss of fund can either be as a result of fraud or occur without

fraud. Where a cash loss has occurred without fraud or theft being

involved, the Chief Executives are personally empowered to surcharge

the officer responsible up to the full amount of the loss.

REALLOCATION AND VIREMENT OF VOTES

As earlier mentioned expenditures to be incurred in any financial

year are first provided for and approved in the annual estimates (the

Budget). In the course of the year there may be need for readjustments

of votes. Reallocation is movement from one sub-head to the other

while virement is movement from Head to the other especially within

capital votes. Virement of Capital Votes without proper approval is now

a criminal offence punishable under the anti corruption law.

TENDERS AND TENDERING PROCEDURE

Government contracts are awarded in accordance with the

ordinary law of contract, that is, through offer by one side and

acceptance by the other. The only distinction between a Government

contract and that of commercial establishment is that the latter can freely


139

choose the suppliers with whom it wants to work while the former is

obliged to consider the claims of all qualified firms wishing to work for it.

Therefore, in the public sector, a contract should be awarded

based on competitive tender procedures unless there are specific

reasons to the contrary.

Current Tendering Procedures as provided in the Financial

Regulations with Modifications as contained in Finance Circular No.

F15775 of 27th June, 2001, Procurement Act 2007 & related circulars

include:

(i) Abrogation of Departmental Tenders Board

Any procurement; the values of which do not exceed N1 million

can be approved by the Accountant officer/Permanent

Secretary without. Open competitive tendering after having

obtained at least three quotations from suitably qualified

contractors/suppliers. All expenditures incurred under this

policy are to be reported to the minister on quarterly basis.

(ii) Establishment of Ministerial Tenders Board

(a) There shall be established in each Ministry/Extra-Ministerial Department a Ministerial Tenders Board Chairman of which shall be the Permanent Secretary/Chief Executive of the Extra-Ministerial Department.

(b) The other members of the Ministerial Tenders Board shall be the Director/heads of Departments in the Ministry/Establishment.

(c) Each Ministerial Tenders Board is empowered to award any contract the value of will be in accordance with existing threshold

(d) The decisions of the Ministerial Tenders Board shall be confirmed by the Minister.

(iii)


140

(iv) ESTABLISHMENT OF PARASTALTENDER BOARD There is in existence a parastal tender Board made up of the chief executive/Accounting Officer as Chairman and relevant Heads of Departments as members. The Director of procurement is secretary.

ESTABLISHMENT OF PROCUREMENT PLANNING COMMITTEE

In accordance with Section 21(1) of the Procurement Act, for each

financial year, each procuring entity shall establish a Procurement

Planning Committee which shall consist of:

(a) The Accounting Officer of th4e procuring entity who shall be the Chairman of the committee;

(b) The Director/Head of: i) the Procurement Department of the procuring entity

who shall be the Secretary; ii) the Department directly in requirement of the

procurement; iii) the Finance & Accounts Department of the procuring

entity; iv) the Planning, Research and Statistics Department of

the procuring entity; v) a Technical Personnel of the procuring entity with

expertise in the subject matter for each particular procurement and;

vi) the Legal Unit of the procuring entity.

The Procurement Planning Committee in each MDA shall be

responsible for issuing a ―Certificate of ‗No Objection‘ to Contract Award‖

for Contracts above N1 million but below N50 million to enable the

Procuring Department to proceed to the Ministerial Tenders Board for

approval of the Contract. For all Recurrent and Capital Contracts of N50

million and above, the Procurement Planning Committee shall ensure

that all Due process have been followed and shall submit a

recommendation to the Bureau of Public Procurement for a ―Certificate


141

of ‗No Objection to Contract Award‖ to be issued to enable the MDAs

proceed to the Federal Executive Council (FEC) for the approval of the

Contract.

ESTABLISHMENT OF TECHNICAL EVALUATION COMMITTEE

There shall be a technical Evaluation committee to evaluate bids in

order to assist the Tender Board to make informed decision.

Federal Executive Council

Any contract the value of which exceeds N50,000,000.00 shall be

approved by the Federal Executive Council.

DUE PROCESS OBLIGATIONS

Due process demands that in making procurements on behalf of

Government, the process must be:

(i) Open

(ii) Competitive

(v) Cost accurate

The process also specifies approval thresholds outlined below:

(Circular No. SGF/OP/I/S.3/VIII/57 of 11th March, 2009.)

(a) Procurement Approval Thresholds for Bureau of Public

Procurement, Tenders Boards and Accounting Officers (PSs

and CEOs) for All Ministries, Departments and Agencies.


142

Approving Authority/ “No Objection” to award

Goods Works Non-Consultant Services

Consultant Services

BPP issue “No Objection: to award/ FEC approves

N100 million and above

N1.0 billion and above



Ministerial Tenders Board N5 million and above but less than N100 million

N1o million and above but, less than N1.0 billion

N5 million and above but less than N100 million


Parastatal Tenders Board N2.50 million and above but less than 50 million


N2.50 million and above but less than N50 million


Accounting Officer: Permanent Secretary

Less than N5 million




Accounting Officer: Director-General/CEO

Less than N2.50 million

Less than N5 million Less than N2.50 million


(b) Procurement Methods and Thresholds of Application

Procurement/ Selection Method and Prequalification

Goods Works (N) Non-consultant Services (N)

Consultant Services (N)

International/National Competitive Bidding


N1 billion and above N100 million and above

Not Applicable

National Competitive Bidding

N2.5 million and above nut less than N100 million

N2.5 million and above but less than N1 billion


Not Applicable

Shopping (Market Survey)




Not Applicable

Single Source/Direct Contracting (Minor Value procurements)





Prequalification N100 million and above



Not Applicable

Quality and Cost Based Not Applicable Not Applicable Not Applicable N25 million and above

Consultant Qualifications Not Applicable Not Applicable Not Applicable Less than N25 million

Least Cost Not Applicable Not Applicable Not Applicable Less than N25


143

million (c) Composition of Tenders Boards

Ministry:

Chairman:- Permanent Secretary

Members:- Heads of Departments

Parastatals:

Chairman:- Chief Executive Officers

Members:- Heads of Departments

Other Due Process Requirements include: (1) Advertisement (2) Pre-Qualification Requirements (3) Invitation to Tender or Bid (4) Opening of Tender (5) Evaluation of Tender (6) Technical Bidding (7) Financial Bidding (8) Determination of the winner

e-Payment By Federal Treasury Circular No TRY/A8&B8/2008

OAGF/CAD/026/VOL.II/465 of 22nd October, 2008, the Federal

Government formally abolished the use of cheques to make payments

by public offices. All payments are now to be made electronically with

effect from 1st January, 2009. Transactions covered by the e-payment

include:

All payments to Contractors and Consultants

All payments to service providers e.g PHCN

All payment to Staff

All payment to other government agencies e.g FIRS

Implication of this is that Financial Regulation 618 which provide

for payment by cheque is automatically amended. Similarly the signing

of Voucher which is mentioned in Financial Regulation 605 & 606 Is


144

thus affected as many people paid by mandate hardly come back to sign

PVs.

MANAGEMENT OF GOVERNMENT ASSETS

Financial Management either in public sector or private sector

must include assets management because assets are either directly

money or money worth. In recognition of this, the Financial Regulations

provide elaborately for the management of both current and fixed assets

of government especially as the basis of accounting in the public sector

is mainly cash not accrual. Hence chapters 23 – 28 deal with store

matters.

As already mentioned above, assets of government consist of

Current and Fixed Assets. The Fixed assets can further be categorized

into moveable and immovable. The moveable ones are items of store

which have been elaborately provided for while the immovable ones are

not so much treated perhaps because they are not subject to pilferage or

outright theft. However management is expected to ensure their

maintenance to avoid deterioration.

STORES

Stores include all movable property purchased from public funds or

otherwise acquired by Government. (Financial Regulations 2301).

These are categorized into two namely: allocated and unallocated stores

for purpose of accounting. They can also be classified according to their

attributes as

(i) Non – expendable stores e.g. plant and machinery, motor

vehicles, typewriters, scales and furniture

(ii) Expendable stores e.g Shovels, machetes, brushes,

(iii) Consumable stores e.g. paint, soap grease and food – stuffs.


145

Whatever category government asset belongs to, it is the

responsibility of Management to make sure they are properly taken care

Financial 2501 says every government officer is personally and

pecuniarily responsible for government property under his control or in

his custody. However a greater responsibility is placed on the

Accounting Officer.

The Accounting Officer is responsible for the general supervision

and control of stores and stores accounts of his Ministry/Extra-Ministerial

Department or agency, and for the due performance by his staff of their

duties (Financial Regulations 2502.) This Accounting Officer must do by

appointing store inspection officers) and/or Board of Survey.

BOARD OF SURVEY

Financial Regulations 3423 states that Ministry of Extra ministerial

Department will set up Board of Survey for Boarding and disposal of its

unserviceable stores, vehicles, plans, and equipment etc.

The accounting officer shall appoint a Board of Survey of not less

than three members one of who will be chairman. The membership

should include the Head of Account Division or his nominee and a

professional/Technical Officer. It is this Board or the Accounting Officers

that has power to dispose off government Asset.

CONCLUSION

Financial Regulations in all ramifications are designed to ensure

accountability and probity in financial management in the Public Sector.

It is an accounting control document which all Treasury Accountants and

Auditors must be conversant with in order to succeed in the Public

Sector. Government is determined that all financial rules and regulations

must be complied with. The controls are designed to promote honesty


146

and transparency in all government financial transactions. It is therefore,

mandatory for all Public Officials to ensure strict compliance with the

provisions of the Financial Regulations.

All public officials should acquaint themselves and comply with

Financial Regulations, the Finance (Control and Management) Act Cap

144 LFN 1990 as well as the relevant sectors of the Constitution dealing

with Public Finance. This is the only guarantee against financial

malpractices and corruption in the Public Sector.


147

ETHICS, INTEGRITY AND CODE OF CONDUCT

FOR PUBLIC OFFICERS Learning Objectives

At the end of this session , participants should be able to:

Define ethics

State the rationale of Ethics for the Public Service

Highlight the principles of Ethics

INTRODUCTION

With almost two decades experience in the Federal Civil Service,

one is bold to say that little, if any, serious attention is paid to the

attitudes of public officials in the conduct of government business. The

Public Service Rules which are designed to control the conduct of

Nigerian public officials are invariably observed in the breach. Hence,

the steady moral decay and rot, which are now being witnessed in the

Nigerian public services, at all levels. Ethical issues or moral practices

were taken away from Nigerian schools; Nigerian youths are thereby

exposed to various forms of unethical practices, such as examination

malpractices, armed robbery, kidnapping and looting of government

treasures. The need to find solutions to these unethical practices is

perhaps, the reason for this lecture.


148

What Is Ethics?

A generally accepted precise definition of ethical practices has not

been found. This is because ethics reflects a society‘s perspective on

human conduct and pronounces actions good or bad with references to

some standard or criterion as imposed by or especially relevant to that

society. Therefore, all morality is RELATIVE to the varying degrees of

recognition of improprieties and aversions by individuals and

communities.

Ethics are concerned with moral obligations as distinct from legal

obligations. The division between personal ethics and corporate law will

always be a fine one, if only because the law is in essence a response to

a country‘s perceived ethical standards. For practical purposes of

considering ethics and obligations that are enforceable under public

service regulations and those obligations which are self-imposed and

which in the ordinary course could not be used as a basis of disciplinary

action in the public service against an officer who might be thought to

have transgressed. The oath (or affirmation) that public servants take to

uphold the constitution can be seen as the foundation of ethics for public

servants (Ikotun, 2004).


149

A Tentative Definition of Ethics:

According to Dwivedi (1978), a problem of ethics in the public

service may be said to exist whenever public servants, individually or

collectively, use positions (or give the appearance of doing so) in a way

which compromises public confidence and trust because of conflicts of

loyalties or values, or as a result of attempts to achieve some form of

private gain at the expense of public welfare or common good.

Why Ethics in the Public Service:

In many countries today, there are increasing expectations from

Civil Society, through better – focused medial attention and public

scrutiny, for higher standards of ethicality and integrity from public

officials and governments. There is now a need to concentrate on three

areas of concern in particular, which are directly relevant to the problems

of internalizing integrity and Ethics in democratic governments and the

Civil Service.

These concerns are as follows:

(a) The need to anticipate specific threats to ethics standards

and integrity in the public sector;


150

(b) The need to develop the ethical competence and

socialization of civil servants, and an ‗ethical culture‘ in

Government and the Civil Service;

(c) The need to identify or develop specific systems and

processes, which promote ethics and integrity, new pro-

ethics laws, management techniques, and systems which

encourage integrity, accountability and transparency.

Most Civil Service regimes, especially in the West, still equate

―ethics‖ with anti-corruption efforts, and a minimal written Code of

Conduct or Code of Ethics, which is usually concerned with

prohibiting conflict of interests and self-service. This, however,

appears to be an insufficient effort.

It is now generally recognized that meaningful and enforceable

Ethics codes, based on legislation and backed by high-level

political commitment, are essential. It is also recognized that any

significant degree of success in the fight against corruption will be

directly connected with the fight to ensure that high standards of

personal ethics and system integrity are effectively institutionalized

in the Civil Service. What is becoming better understood is that

ethical conduct and corruption


151

in the public sector are the two sides of one coin. That said, the problem

remains that no Ethics Law or Code of Conduct will be of much value if

individual civil servants lack the technical competence to recognize a

values-based professional ethics dilemma for what it is, or if they do not

know what standards their organization expects of them, or if they

consider it to be not in their interests, personally or professionally to take

a stand for integrity and against corruption.

ETHICS PRINCIPLES:

Ethics Principles perform four distinct functions:

(a) They set down specific values, which are important to an

individual, such as ‗honesty‘, ‗fairness‘, ‗integrity‘, ‗reliability‘,

‗selfishness‘.

(b) Principles provide general guidance which assists a person

to make decisions.

(c) Principles invite other people to trust that the person can be

relied on to observe the ethical standards implied by the

principles.

(d) Principles impose a standard for judgment; so that everyone

can make judgments about the ethics of the person.


152

Ethics Principles, rules and Codes:

Here, we look at how a professional ethics code may assist civil

servants and public officials to meet complex, and sometimes difficult,

standards based on the ethical principles, which are generally expected

of public officials. Code of ethics performs four distinct functions:

(i) A code sets down specific ―rules of the game‖ for an

organization;

(ii) A code provides generalized guiding principles which assist

a particular profession or organization to apply the rules, and

invite judgment;

(iii) A code invites the public to put its trust in the organization,

and specifically to trust that its staff, will observe the ethical

standards set out in the code;

(iv) A code imposes a standard for judgment: everyone, both

inside and outside ‗the game‘, is in a position to make

judgments about the ethical conduct of others (Transparency

International, 2000).

These principles reflect the ‗role‘ of the person who is employed in

the civil service, or a person who is elected to a position in

government, or someone who is appointed to a ‗public office‘.


153

Examples of such principles include Integrity, Transparency,

Confidentiality, Honesty, Accountability, Legitimacy, Impartiality,

Lawfulness and Responsiveness (Ikotun, 2004).

Ethics Infrastructure:

The establishment and maintenance of integrity in public life and

public service require a number of elements: legislation, regulations and

codes of conduct; professionalism among officials, a society whose

religious, political and social values expect honesty from politicians and

officials; and political leadership that takes both public and private

morality seriously.

These elements together can be understood as an ‗Ethics

infrastructure‘, a set of measures, tools and conditions, which either

regulate against undesirable conduct or provide support and incentives

to encourage good conduct, by public officials.

Countries undertaking reforms in ethics in the public service today

are beginning to consider the state of their ethics infrastructure in order

to determine which elements require improvement. Like any other set of

management tools, the effectiveness of a country‘s ethics infrastructure

depends on whether it is effectively operationalized, comprehensively

understood by public civil society, and consistently applied by civil


154

service managers, political leaders, regulatory agencies, co-ordination

bodies, and the community at large.

Based on international experience, eight key building blocks or

elements of an Ethics infrastructure may be identified.

(i) An effective legal framework;

(ii) Efficient Accountability Mechanisms;

(iii) Active Civil society;

(iv) Practicable and Relevant Ethics Code;

(v) Ethics Co-ordinating Bodies;

(vi) Professional Socialization Mechanisms;

(vii) Political Commitment;

(viii) Co-ordinating Mechanisms (Ikotun, 2004).

CONCLUSION:

Effort has been made in this paper to highlight the significance of

Ethics principles and codes in the conduct of government business.

Since public officials occupy positions of trust, both their public and

private conducts are open to public glare and scrutiny. They are

therefore expected to operate under a high standard of integrity, honesty

and accountability.


155

Although ethics principles are relative, public officials in all

countries, including Nigeria, are expected to meet standards which are

internationally accepted. In Nigeria where moral suasion appears

ineffective in curtailing unethical conduct of public officials, there is need

to apply stringent code of conduct. Corruption, for instance should be

regarded as economic sabotage, which requires death penalty.


156

OVERVIEW OF CURRENT REFORMS INITIATIVES

SESSIONAL OBJECTIVES

At the end of this session, participants should be able:

to Explain the purpose of the Current Reform Initiatives

to identify the Agenda for the Reforms.

to identify the major components of NEEDS, SERVICE DELIVERY

AND DUE PROCESS

to outline the Institutional arrangements for implementing the

Reforms

to outline the concrete achievements of the Reforms

to explain the new initiatives of the Yar‟Adua Administration

- 7-Point Agenda;

- Millennium Development Goals (MDGs);

- NEEDS 2; and

- Vision 2020.

to outline the performances of States.

INTRODUCTION

The former President of the Federal Republic of Nigeria, Chief Olusegun

Obasanjo, GCFR, on assumption of office as the second Executive

President of Nigeria in May, 1999, did not mince words in recognizing


157

the Public Service as an instrument he must work with in the governance

of the nation. In order to put that instrument in proper shape for its

arduous task, he stressed the need for proper Civil Service Reforms. He

however, emphasized that the Reforms will be in phases. The Public

Service inherited by Mr. President and perceived by him is best

described in the following statement which was part of his address while

inaugurating the National Assembly then. Accordingly to him,:

“Public Offices are the shopping floors of government business. Regrettably, Nigerians have for too long been feeling short-changed by the quality of public service delivery by which decisions are not made without undue outside influence, and files do not move without being pushed with inducements. Our public offices have for too long been showcases for the combined evils of inefficiency and corruption, whilst being impediments to effective implementation of government policies, Nigerians deserve better. And we will ensure they get what is better”. “The Reforms will be all encompassing and all embracing ……….. no community, no individual or group would be left out in the reform….. In the process of that reform, if some people are hurt, we have no apology. We will do what has to be done to make Nigeria move forward, to make it what I believe God has created it to be; a land flowing with milk and honey; a country to be respected within the comity of nations, a land of glory; a land of prosperity, a land of what is right and not a land of any thing can go.” As a consequence of the Federal Government‘s resolve to re-

orientate the Public Service for the demands of democratic governance

and the challenge of the 21st century, the Federal Executive Council


158

(FEC) at its meeting held on the 15th June, 2001 mandated the Office of

the Head of Service of the Federation through the Management Service

Office (MSO), to design the strategy for a far reaching reform of the

Public Service.

As a prelude, a service-wide study was conducted by the

Management Services Office of the Head of Service of the Federation

and the following findings made;

Ageing population whereby about 60% of staff are within the age

bracket of 40 years and above;

The junior (unskilled) staff on Grade Levels 01 - 06 constitute

about 70% of the entire workforce;

Grade levels 15 and above constitute7%;

Grade levels 01-14 are dominated by the females, who constitute

60% of the staff;

Total staff strength of the Federal Civil Service is about 160,000;

Estimated 60 - 70 percent of the Federal Government spending

has gone towards running the federal bureaucracy;

Notwithstanding, a pay rise of 250 - 350% between 1999 and

2000, even current remuneration of the Civil Servant is not

adequate;


159

There is an undetermined number of ‗ghost‘ workers in the system,

symptomatic of poor personnel records and payroll control

systems;

Stagnation, especially at the higher levels of service, leading to

loss of morale;

Systematic training needs identification and the building and

upgrading of staff skills were absent;

Training was in most Ministries, Departments and Agencies

(MDAs) not budgeted for;

The training institutions have themselves been run down;

Ministries, Departments and Agencies (MDAs) do not have

mission and vision statements, work programmes, organisation

charts, corporate and individual schedules of functions and

duties;

Virtually all key public institutions are under-resourced, under-

skilled and lack the capacity to capitalize on technological

changes to modernize;

Working tools, required to operate a modern management system

for efficient and effective service delivery are inadequate;


160

Professionalism, merit and esprit de corps have been significantly

eroded;

Policy making has become a matter of ad hoc responses to urgent

problems without rigorous long-term policy analysis, consultation

and monitored control;

Budget system had become characterized by over-estimated

revenues, and under-estimated expenditure; and

The procurement system had been abused in many MDAs and

was neither transparent to bidders nor to the public.

The following eight principles of Public life were subscribed to:

Selflessness;

Integrity;

Objectivity;

Accountability;

Openness;

Honesty;

Patriotism; and

Leadership.

The reform agenda arising as a consequence could be categorized

as follows:

National Economic Empowerment and Development Strategy

(NEEDS);

Service Delivery; and

Due Process.


161

NATIONAL ECONOMIC EMPOWERMENT AND DEVELOPMENT STRATEGY: NEEDS focuses on four key areas namely:

• Macro-economic stability as well as accelerated privatization and

Liberalization of the economy;

• Public Service Reform, including reform of public expenditure,

budgeting, Accounting etc;

• Governance Reforms and Institutional Strengthening; and

• Transparency, Accountability and Anti-corruption Reforms.

SERVICE DELIVERY:

This is directly related to the public service reforms. It has the

following key elements among others, creating a citizen charter. A good

citizen‘s charter should have the following components:

Vision & Mission Statements of the organisation.

Details of Business transacted by the organization

Details of citizens or clients.

Statement of services including standards, quality, time – frame

etc.

provided to each citizen/client group separately and how/where to

get the services.

Details of Grievances Redress mechanism and how to assess it.


162

Expectations from the citizens or clients.

Additional commitments such as compensation in the event of

failure

of service delivery.

DUE PROCESS:

Is a key element in the management of Public Finance

Ensures maintenance of Standards, transparency and

accountability;

Guarantees elimination of wastes;

Ensures appropriate respect for rules, regulations and procedures

as they relate to management of public funds.

Institutionalizes all – encompassing budget circles drawn by

genuine consultations, realistic privatization and steadfast funding

of approved budget items.

The Institutional arrangement so far undertaken:

Establishment of National Council on Reforms with President of

the Federal Republic of Nigeria as Chairman.

Establishment of a Steering Committee on Reforms under the

Chairmanship of the Honourable Minister of Finance;


163

Establishment of the Bureau of Public Service Reforms to serve as

the coordinator as well as serving as Secretariat to both the

Steering Committee and the National Council of Reforms;

Establishment of a Service Delivery Unit in every MDA;

Establishment of a Policy and Programme Monitoring Unit, in the

Office of the President, to among others, build a comprehensive

Policy Data Base for monitoring the process of implementation of

government Policies, Programmes and Projects.

CONCRETE ACHIEVEMENTS OF THE REFORMS

The following significant achievements have been recorded under

the Present Initiative:

Implementation of the monetization policy in the core Civil

Service and extension of the policy to Parastatals within the

current year;

Introduction of a contributory Pension Scheme which is a

radical departure from the hitherto pay-as-you-go-system;

Sensitization of MDAs on the new concept of Service Delivery

in order for them to undertake management innovation for

enhancing quality Service to the Public;


164

Institution of a more transparent and open procurement system

as one of the means of curtailing wasteful expenditure and

ensuring value for money;

Rightsizing the Civil Service, an exercise that has now reached

an advanced stage;

Review of Public Service Rules, Regulations and Procedures;

Review of the Performance Evaluation Management System;

Implementation of the National Health Insurance Scheme; and

Collaboration with International Development Partners notably

the World Bank, Department for International development;

United States Agency for International Development.

WEALTH CREATION

First African country in history to exit Paris Club debt;

Macro-economic stability;

Foreign exchange stability;

Increasing foreign reserve:

- US$16 billion in 2003;

- US$28 billion in 2005;

- US$34 billion by March, 2006

Reduced inflationary rate.


165

REORIENTATION OF VALUES:

EFCC – Reduction in financial crimes

ICPC – Reduction in financial crimes

Due Process – Reduction in wastes

AREAS NEEDING IMPROVEMENT:

Exchange rate of the Naira (N145.32 Official

Market/N183.00 per Parallel Market to $1;

Inflation rate – 15% per annum;

Interest rate of Banks – 18.91%;

Human Development Index (HDI) 157th in the world.


166

PERFORMANCE OF STATES

BENCHMARK FOR PERFORMANCE RATING OF SEEDS IN THE STATES IN THE YEAR 2005

S/N State Zone Policy Budget

& Fiscal Mgt.

Service Delivery

Communication & Transparency

Total Score

1. Enugu SE 16.00 18.45 12.75 10.02 57.22

2. FCT 14.00 10.48 13.25 12.55 50.28

3. Osun SW 7.00 16.80 13.30 8.62 45.72

4. Ekiti SW 14.50 15.65 8.80 6.50 45.45

5. Ebonyi SE 10.00 13.80 10.60 9.87 44.27

6. Benue NC 12.25 14.40 12.25 4.10 43.00

7. Ondo SW 9.25 15.65 8.15 9.60 42.65

8. Lagos SW 7.50 18.25 9.55 6.10 41.40

9. Kaduna NW 9.50 13.50 10.30 7.50 40.80

10 Jigawa NE NW 11.50 12.95 12.25 4.70 40.60

11 Adamawa NE 9.80 15.70 9.70 4.65 39.85

12 Anambra SE 8.70 16.35 10.20 6.40 38.45

13 Cross River SS 6.00 16.35 10.10 6.00 38.45

14 Delta SS 7.50 15.05 10.30 5.85 37.70

15 Kano NW 8.75 14.20 10.20 4.45 37.60

16 Edo SS 11.00 9.50 11.70 4.75 36.95

17 Kogi NC 11.50 9.00 12.05 4.02 36.57

18 Yobe NE 7.00 14.75 8.05 6.65 36.45

19 Rivers SS 10.00 11.67 10.25 4.30 36.22

20 Bauchi NE 7.00 13.40 11.35 4.07 35.82

21 Imo SE 8.40 15.30 6.40 3.80 33.90

22 Kwara NC 11.00 8.50 8.90 5.25 33.65

23 Plateau NC 11.00 8.25 8.55 5.85 33.65

24 Gombe NE 8.00 15.30 6.30 4.00 33.60

25 Akwa Ibom SS 11.50 18.80 5.80 4.00 33.60

26 Kebbi NW 5.50 12.50 12.00 2.50 32.50

27 Sokoto NW 6.90 9.60 8.40 6.60 31.50

28 Ogun SW 4.00 13.40 10.10 3.85 31.35

29 Zamfara NW 8.10 9.90 9.80 3.25 31.05

30 Abia SE 10.25 12.25 5.85 1.50 29.85

31 Niger NC 12.50 10.90 8.85 1.90 27.65

32 Katsina NW 6.00 10.90 8.85 1.90 27.65

33 Nasarawa NC 8.80 5.80 7.45 4.62 26.67

34 Borno NE 6.00 10.50 4.05 5.25 25.80

35 Oyo SW 5.00 6.35 8.30 3.87 23.53

36 Taraba NE 6.75 6.70 6.25 2.50 22.20

37 Bayelsa did not participate

Source: Federal Republic of Nigeria (2005) SEEDS Benchmarking, 2005 Report (Abuja: National Planning Commission).


167

SEEDS BENCHMARKING RESULTS 2006

S/N State Zone Policy Budgeting & Mgt.

Service Delivery

Communication

& Transpar

ency

Total Score

Position

1. Ebonyi SE 9.0 10.15 14.0 9.3 42.18 1st

2. Anambra SE 8.7 15.95 8.0 6.0 38.65 2nd

3. FCT 9.7 8.3 9.0 10.55 37.05 3rd

4. Kwara NC 7.2 14.35 6.0 8.75 36.30 4th

5. Cross River SS 6.2 16.75 7.0 6.0 35.95 5th

6. Jigawa NW 10.7 12.1 9.0 2.3 34.10 6th

7. Kaduna NW 6.3 15.5 4.25 6.8 33.85 7th

8. Ondo SW 6.3 12.25 7.75 7.33 33.33 8th

9. Delta SS 7.3 9.1 9.0 7.8 33.20 9th

10 Akwa Ibom SS 10.2 12.0 4.5 5.5 32.20 10th

11 Abia SE 9.5 8.85 9.0 5.3 32.16 11th

12 Imo SE 5.5 11.6 8.0 6.8 31.90 12th

13 Rivers SS 8.6 7.5 6.0 9.75 31.85 13th

14 Kebbi NW 7.9 12.0 6.0 5.55 31.45 14th

15 Lagos SW 5.4 10.5 10.0 4.0 30.90 15th

16 Kano NW 8.7 9.95 7.0 3.3 28.95 16th

17 Osun SW 4.5 9.05 10.0 4.8 28.35 17th

18 Adamawa NE 9.0 11.25 0.0 8.05 28.30 18th

19 Oyo SW 6.7 9.5 6.0 5.8 28.0 19th

20 Plateau NC 6.2 7.75 6.0 4.05 24.0 20th

21 Sokoto NW 7.4 9.25 2.0 4.8 23.45 21st

22 Niger NC 5.5 10.3 3.5 2.5 21.80 22nd

23 Bayelsa SS 4.2 9.0 5.5 4.0 22.7 23rd

24 Kogi NC 6.3 6.7 1.0 7.2 21.20 24th

25 Benue NC 8.0 3.8 4.0 5.3 21.1 25th

26 Gombe NE 5.8 9.75 7.0 3.25 20.80 26th

27 Ekiti SW 5.5 6.05 6.0 2.75 20.30 27th

28 Katsina NW 3.0 6.0 6.0 5.3 20.30 28th

29 Bauchi NE 6.9 3.0 6.0 4.25 20.15 29th

30 Yobe NE 4.0 4.0 3.0 8.5 19.50 30th

31 Edo SS 4.5 3.8 7.0 2.8 18.10 31st

32 Taraba NE 6.9 4.2 2.0 3.5 16.60 32nd

33 Zamfara NW 4.7 4.25 2.0 3.55 14.50 33rd

34 Nasarawa NC 5.6 4.7 3.0 0.8 14.10 34th

Note: Three States, Borno, Enugu and Ogun are not included due to unavailability of data

Source: Federal Republic of Nigeria (2006) SEEDS Benchmarking Report (Abuja: National Planning Commission).


168

BENCHMARKING METHODOLOGY

The following benchmarks were developed to measure four key areas of

states performance

• Policy: Is there a SEEDS document? Who was consulted in

preparing it? Has it been made public?

• Budget and Fiscal Management: Is the budget a reliable guide

to spending? How is the budget prepared and does it reflect

priorities in SEEDS? How is expenditure tracked? How is debt

managed? Does the state produce accounts and have them

audited?

• Service Delivery: Is policy based on reliable data? How well

does the State cooperate with other tiers and other service

providers? Has it taken steps to restructure its Civil Service and

curb payroll fraud? Are services responsive to users?

• Communication and Transparency: How open and transparent

is the state‘s procurement? What has it done about corruption?

Are there opportunities for people to question their leaders? Can

the public obtain information on actual expenditure?


169

• National Planning Commission (NPC) and States deliberated in a

3 – day joint consultative workshop and agreed on the

Framework for the joint assessment of SEEDS

• The Workshop proposed a set of key benchmarks by which States

were to be assessed

• Within each benchmark, a set of measures defined targets which

states may have achieved.

• There were 17 measures in all.

• Each measure was allocated a different number of points as its

maximum weight, depending on its importance to the economic

reforms.

PERFORMANCE OF STATES BASED ON COMPREHENSIVE BENCHMARKING MEASURES (BUSINESS ENVIRONMENT) Ranking of States were based on the following:

• Infrastructure and utilities

• Energy

• Water supply

• Access to information

• Transportation

• Social Infrastructure

• Legal and Regulatory Services

• Business Registration

• Contract Enforcement


170

• Land Administration

• Support and Investment Promotion

• Enterpreneurship Promotion

• Access to finance

• Investment Promotion

• Public-Private Partnership

• Security

• Crime Rates

• Police Coverage and Perceptions on Security


171

PERFORMANCE OF STATES ON BUSINESS ENVIRONMENT REFORMS

S/N STATES ZONE SCORES POSITION

1 Lagos SW 60.45 1st

2 Cross River SS 57.85 2nd

3 Kaduna NW 56.9 3rd

4 Akwa Ibom SS 55.4 4th

5 Niger NC 55.35 5th

6 Sokoto NW 55.0 6th

7 Kebbi NW 54.25 7th

8 Plateau NC 53.15 8th

9 Gombe NE 52.5 9th

10 Edo SS 52.45 10th

11 Kano NW 51.5 11th

12 Enugu SE 51.35 12th

13 Katsina NW 51.1 13th

14 Oyo SW 51 14th

15 Delta SS 50.7 15th

16 Benue NC 49.15 16th

17 Imo SE 48.65 17th

18 Bayelsa SS 48.65 18th

19 Adamawa NE 48.3 19th

20 Ondo SW 47.9 20th

21 Kwara NC 47.7 21st

22 Rivers SS 47.45 22nd

23 Bauchi NE 47.4 23rd

24 Osun SW 47.15 24th

25 Jigawa NW 46.05 25th

26 Taraba NE 43.8 26th

27 Kogi NC 43.4 27th

28 Ekiti SW 42.65 28th

29 Abia SE 42.65 29th

30 Anambra SE 41.9 30th

31 Ebonyi SE 41.8 31st

32 Yobe NE 41.15 32nd

33 Nasarawa NC 39.15 33rd

34 Zamfara NW 37.95 34th

35 Borno NE 36.25 35th

Note: Ogun State did not participate in the exercise Source: BECANS Business Environment Report: Business Environment Scoreland of

Nigerian States National Business Report Vol. 1, No. 1, 2007 p. 116.


172

RECOMMENDATIONS AT VARIOUS STATE LEVELS

• Citizen‘s participation in policy design, project implementation and

monitoring should be institutionalized.

• States should publish budget allocations at State and Local

Government levels.

• Community-based budget monitoring mechanisms should be established at the Local Government Level.

• Pay up their counterpart fund for Universal Basic Education (UBE)

• All States should create MDG offices.

• States to meet the minimum requirements recommended by the

MDGs.

• Need for quarterly open forum for dialogue with the people at LGAs through town hall meetings.

• State and LGAs should increase budgetary allocation to health.

• Road network should be improved.

• Water supply and sanitation should be prioritized.

SOURCE: THISDAY NEWSPAPER WEDNESDAY AUGUST 1,2007

THE CHALLENGE TO YAR‟ADUA‟S ADMINISTRATION

• Assessment of Millenium Development Goals MDGs by

(i) A Government‘s Organ; and

(ii) The Civil Society


173

(i) Assessment By a Government Organ:

In year 2005, the Presidential Committee on the Assessment and

monitoring of Millennium Development Goals (MDGs) in Nigeria returned

a verdict titled: ―Summary of Nigeria MDGs Report Card, 2005‖ which

is displayed in the table below:

Summary of Nigeria MDGs Report Card, 2005.

GOALS VERDICT

1. Eradicate Extreme Poverty and Hunger

Current efforts need to be intensified if Nigeria is to achieve the target by 2015

2. Achieve Universal Primary Education (UBE)

UBE has achieved marked improvement in enrolment but needs to accelerate action toward completion rates and gender equality. There should be improvement in quality-learning outcomes to achieve the goal by 2015.

3. Promote Gender Equality and Empower Women

Girls and Women are likely to miss 2005 gender parity target, concrete steps and democratic processes of the country to reverse the trends.

4. Reduce Child Mortality Unacceptable rates of child mortality prevail and are preventable; urgent actions are required by all tiers of government to put Nigeria back on track.

5. Improve Maternal Health Maternal mortality is now a national emergency, ―current rates are unacceptable and must be reversed‖ says Mr. President.

6. Combat HIV/AIDS, Malaria and other diseases.

Scaled up efforts are required to sustain gains made to achieve the targets.

7. Ensure Environmental Sustainability

On-going concerted efforts to be enhanced towards attaining the environment target by 2015.

8. Develop a Global Partnership for Development

Global Partnerships showed marked improvement with genuine efforts to assist Nigeria in its quest for Debt Relief. There is need for substantial and urgent scaling up of development assistance to finance the MDGs.

Source: Federal Government of Nigeria, Millennium Development Goals

(MDGs) Information Kit, 2006.


174

Assessment By Non-Governmental Organization (NGOs)

In its own assessment undertaken under the aegies of Civil

Society in year 2007 the non-governmental organizations returned a

verdict titled: ―Civil Society Score-Card,‖ which we articulate here:

(i) 53.6% of Nigerians are still living in abject poverty;

(ii) 8 million school-aged children are not in school;

(iii) Over 43% of Nigerians cannot read or write (60% are women);

(iv) One out of every 100 Nigerian children die before the age of five;

(v) 704 out of 100,000 Nigerian women die during child birth;

(vi) 75 million people in Nigerian have at least one episode of malaria

annually;

(vii) 72 million Nigerians have no access to safe drinking water;

(viii) Nigeria paid back 1.7 billion Pounds Sterling to the U.K.

Government debt cancellation deal. This is twice the total aid

amount from the United Kingdom (U.K.) to the whole of Africa.

Source: ThisDay Newspaper, Wednesday, August 1, 2007.


175

YAR‟ADUA ADMINISTRATION‟S INITIATIVE

The 7 – Point Agenda

• Transport Sector – ‗with its poor roads and road networks, it is an

inefficient means of mass transit of people and goods.‖

• Power and Energy – ‗Development of sufficient and adequate

power supply are aimed at enhancing Nigeria‘s ability to develop

as a modern economy and an industrialized nation by the year

2015.‖

• Food Security – An agrarian based that would be revolutionalized

through modern technology, etc, to lead to a five to ten-fold

increase in yield and production.

• Wealth Creation – ―Wealth Creation through diversified

production.‖

• Land Reforms – ―….. Changes in the land law and the emergence

of land reforms will optimize Nigeria‘s growth through the release

of lands for commercial farming and other large scale businesses

by the private sector.‖

Security – ―… Security should be seen as not only a constitutional

requirement but also as a necessary infrastructure for the

development of modern Nigerian economy‖.


176

Education – ―… reforms in educational sector will ensure ….

Strategic educational development plan, with emphasis on

learning of skills in science and technology so that our nation can

breed her own share of future innovators and industrialists.

The Vision 2020:

To ensure that Nigeria becomes one of the first twenty (20) developed

economies in the world.

References

Maduabum Chuks (2006): Reforming Government Bureaucracy in Nigeria; The Journey so far.(ASCON Printing Press, Topo Badagry). National Planning Commission (2004): National Economic Empowerment and Development Strategy (NEEDS) Document. Abuja. Obasanjo, O. (2003): Speech presented by the President of the Federal Republic of Nigeria, Chief Olusegun Obasanjo, GCFR at the inauguration of the National Assembly, National Assembly Complex, Abuja, June 2003. Ogunbambi, R.O. (2004): The Civil Service in the implementation strategies of National Economic Empowerment and Development Strategy (NEEDS) paper presented at the Retreat of HOCSF with Permanent Secretaries, ASCON, Badagry, August 5 – 8, 2004.


177

THE MILLENNIUM DEVELOPMENT GOALS (MDGS) Learning Objectives:

At the end of interaction, participants should be able to:

trace the historical origin of MDGs

enumerate and Explain the 8 MDGs

compare and contrast Nigeria and other countries in relation to

MDGs

identify factors likely to inhibit the achievement of MDGs

proffer solutions to the likely factors to inhibit MDGs

explain whether Nigeria is likely to achieve the MDGs or not

INTRODUCTION

Globally, the problem of development has occupied the attention of

scholars, activists, politicians, development workers, local and

international organizations for many years with an increased tempo in

the last decade. Even though there are different perspectives to

development, there is a general consensus that development will lead to

good change manifested in increased capacity of people to have control

over material assets, intellectual resources and ideology; and obtain

physical necessities of life (food, clothing & shelter), employment,

equality, participation in government, political and economic

independence, adequate education, gender equality, sustainable

development and peace. This is why some people have argued that the


178

purpose of development is to improve people's lives by expanding their

choices, freedom and dignity.

However, the reality of the world is that many countries are

underdeveloped with precarious development indices. More than 1.2

billion people or about 20 percent of world population live survive on less

that US $1 per day. Wealth is concentrated in the hand of a few people.

The UNDP in its 1998 report documented that the three richest people in

the world have assets that exceed the combined Gross Domestic

Product (GDP) of the 48 least developed countries. Similarly, the 1000

richest people in the world have personal wealth greater than 500 million

people in the least developed countries.

Nigeria, which was one of the richest 50 countries in the early

1970s, has retrogressed to become one of the 25 poorest countries at

the threshold of the twenty first century. It is ironic that Nigeria is the

sixth largest exporter of oil and at the same time host the third largest

number of poor people after China and India. Statistics show that the

incidence of poverty using the rate of US $1 per day increased from 28.1

percent in 1980 to 46.3 percent in 1985 and declined to 42.7 percent in

1992 but increased again to 65.6 percent in 1996. The incidence

increased to 69.2 percent in 1997. The 2004 report by the National


179

Planning Commission indicates that poverty has decreased to 54.4

percent. Nigeria fares very poorly in all development indices. The

average annual percentage growth of GDP in Nigeria from 1990 -2000

was 2.4. This is very poor when compared to Ghana (4.3) and Egypt

(4.6). Poverty in Nigeria is in the midst of plenty. Although there has

been steady economic growth in the last few years, there are doubts

whether the benefits are evenly distributed especially to the poor and

excluded. Nigeria is among the 20 countries in the world with the widest

gap between the rich and the poor. The Gini index measures the extent

to which the distribution of income (or in some cases consumption

expenditure) among individuals or households within an economy

deviates from a perfectly equal distribution. A Gini index of zero

represents perfect equality while an index of 100 implies perfect

inequality. Nigeria has one of the highest Gini index in the world. The

Gini index for Nigeria is 50.6. This compares poorly with other countries

such as India (37.8), Jamaica (37.9), Mauritania (37.3) and Rwanda

(28.9).

THE MDGs

Since the Millennium Declaration in September 2000, where 189

world leaders vouched their commitments to meaningful development


180

outcomes, there has been a concerted approach to managing

sustainable human development with both developing and advanced

countries reaching consensus on how best to tackle abject poverty and

other human miseries such as illiteracy, gender inequality, infant and

maternal mortality, HIV&AIDS, malaria and environmental degradation.

In consonance with the Declaration, developed countries renewed their

commitment to raise resources for financing development with a promise

to ensure that 0.7 percent of their Gross National Income is made

available to Official Development Assistance (ODA) to developing

countries while the developing countries also vouched their commitment

to improve governance.

The Millennium Declaration has been translated into eight goals,

christened The Millennium Development Goals (MDGs). The MDGs,

which uses 1990 as the base year, aim to achieve the following by 2015:

Goal 1: eradicate extreme poverty and hunger;

Goal 2: achieve universal primary education;

Goal 3: promote gender equality;

Goal 4: reduce child mortality;

Goal 5: improve maternal health;

Goal 6: combat HIV&AIDS, malaria and other diseases;

Goal 7: ensure environmental sustainability; and

Goal 8: develop a global partnership for development.


181

To ensure effective translation of these goals into concrete

development outcomes, the eight-time bound goals have been

transformed into 18 targets and 48 indicators. This is to ensure that

development activities are better targeted and their implementation is

thoroughly monitored and evaluated. Since 2000, the MDGs have

become the global framework for setting development agenda for

developing countries. As such countries development aspirations have

been built around this framework. Developing countries‘ development

plans and strategies have therefore become the building block and tools

of implementing the MDGs.

Nigeria, as a signatory to the Millennium Declaration, is committed

to achieving the MDGs by 2015. A major strategic framework to

actualizing these time-bound goals is the development of the National

Economic Empowerment Development Strategy (NEEDS) in 2003 and

its counterparts at the state and local government levels (SEEDS) and

LEEDS (in a few states), respectively. These development strategy

documents span 2004-2007. NEEDS was premised on three pillars:

empowering the people in the form of social charter; promoting private

enterprise (via creation of competitive private sector, promoting result-

oriented sectoral strategy and ensuring regional integration); and

changing the way government does its work (by creating an efficient and

responsible public sector, promoting transparency and accountability

and improving security and administration of justice).

As a major component of NEEDS1, many activities were initiated.

Serious institutional reforms were initiated in some piloted MDAs

complemented by institutional rationalization, outsourcing programme,

monetization of fringe benefits and development of Medium Term Sector


182

Strategies (MTSS). In addition to other sectoral initiatives, the Federal

government embarked upon Special Programme for Food Security,

Strategic Grain Reserve, Seed Production Programme, the Fadama II

Programme, the Fertilizer Revolving Loan and several Presidential

initiatives. The transformation of the National Bureau of Statistics

database for poverty monitoring, the strengthening of the National

Poverty Eradication Programme (NAPEP) for special interventions on

the vulnerable groups in the society also complemented the poverty

reduction initiatives of government. The Small and Medium Scale

Investment Equity Insurance Scheme (SMIEIS) was meant to

complement the poverty reduction initiative of government. The

implementation of Virtual Poverty Fund through the Debt Relief Gain, the

Social Safety Net and Conditional Grant are aimed at reaching the

poverty goal.

The implementation of the Universal Basic Education (UBE), the

Child Right Act, Education Management Information System and

Education Sector Analysis, Girl Child Education Programme and Adult

Literacy Programme were initiated to contribute to educational

attainment. Special programmes for empowering women as well as

participation in politics and management decisions such as the National

Policy on Women, Prohibition of Violence Against Women, Strategy for

Acceleration of Girls‘ Education in Nigeria and Female Functional

Literacy for Health were also initiated. The health Sector Reform

Programme, the National Health Insurance Scheme, Integrated Child

Survival and Development, the Roll Back Malaria, the decentralization of

HIV&AIDS management and the transformation of NACA from a

Committee to an Agency status are geared towards reaching the health


183

goals. A number of policies, guidelines and action plans have been

developed to enhance quality of environmental management in the

country; these include National Erosion and Flood Control Policy,

National Environmental Sanitation Policy, Policy Guidelines on Solid

Waste Management, the National Industrial Effluent Limitations

Regulation and Pollution Abatement in Industries and Facilities

Generating Waste, Zero tolerance to Gas Flaring by 2008, etc.

As a way of contributing to partnership to global development, the

country succeeded in delisting itself from the erstwhile pariah state

thereby gaining the largest debt relief in Africa which led to the exit from

Paris and London Clubs of Creditors. In spite of these efforts, the

journey towards the achievement of the MDGs is still very far. Based

on the current policy environment, the country only has the potential of

achieving the goals on universal primary education, ensuring

environmental sustainability and developing global partnership for

development.

The second phase of NEEDS has been initiated in the form of

NEEDS2 which spans 2008-2011. NEEDS2 still relies on the philosophy

of empowering the people, promoting private enterprise and changing

the way government institutions work. While NEEDS 2 serves as the

framework for driving the process of MDGs, the Seven-Point Agenda of

government set the sectoral priorities for implementing NEEDS2. The 7-

Point Agenda refocuses the policy priorities as articulated in NEEDS2 in

a way that sustains the gains of economic reforms and fast track the

process of achieving higher standard of living and better quality of life of

most Nigerians. Areas of policy priorities are:

(i) Sustainable growth in the real sector of the economy;


184

(ii) Physical infrastructure: Power, Energy and Transportation;

(iii) Agriculture and land reform;

(iv) Human capital development: Education and Health;

(v) Security, Law and Order;

(vi) Combating Corruption; and

(vii) Niger Delta Development.

The 7-Point Agenda aims at ensuring that the gains of economic

reform touch on the quality of life of Nigerians. As such, this will

influence the allocation of public resources through budgetary

provisions.

The Federal Government has initiated a Vision of making the country the

largest 20 economies in the world by 2020 and a vision document is

being prepared to articulate strategies of actualizing the this overriding

goal. Obviously, MDGs, NEEDS2, 7-Point Agenda and Vision 2020 are

all reinforcing and non-contradictory. While the MDGs serves as the

framework for achieving sustainable human development, Vision 2020 is

the framework for ensuring economic transformation that could further

create sustainable condition for financing human development. Both

NEEDS2 and &-Point Agenda constitute the how of making MDGs and

Vision a reality. They are all mutually reinforcing the desire to achieve

sustainable human development in Nigeria by addressing the following

goals: poverty reduction, wealth creation, employment generation and

value reorientation.

The main challenge is whether Nigeria has the requisite human

and institutional capacities to deliver on these development aspirations.

This hinges on the capacity of each stakeholder to deliver on its


185

mandates. Although the central philosophy of the development strategy

is to use the private sector as the spring board for economic

transformation and development, the role of the public sector is pivotal,

essentially where the private sector relies heavily on government.

THE SITUATION IN NIGERIA

The situation of MDG in Nigeria can be seen from two main

sources: the Nigeria MDG report 2004 and the Nigeria MDG report

2005. We can also appraise the situation from MDG office especially the

Debt Relief Gains as provided in the 2006 annual budget. The 2004

report which was Nigeria‘s first report on the MDGs states that ―based

on available information it is unlikely that the country will be able to meet

most of the goals by 2015 especially the goals related to eradicating

extreme poverty and hunger, reducing child and maternal mortality and

combating HIV/AIDS, malaria and other diseases‖ It further states that

―for most of the other goals (i.e. apart from goal 1) up-to-date data exist

which show that if the current trend continues, it will be difficult for the

country to achieve the MDG targets by 2015‖.

The Nigeria Millennium Development Goals 2005 report is the

second in the series of annual reports on the MDGs in Nigeria. The

report which addressed the eight MDGs highlights the current status and

trends of each of the MDGs, the challenges and opportunities in

attaining the goal, the promising initiatives that are creating a supportive

environment and priorities for development assistance. The report

concluded that:

There is high potential to attain some of the Millennium

Development Targets such as

Achieving universal primary education


186

Ensuring environmental stability

Developing a global partnership for development

Given the current policy environment and strong political will, there is

also the likelihood of eradicating extreme poverty and hunger. However,

based on available information, there is the need for sustained efforts to

ensure that the country meets the following goals by year 2015:

Achieving gender equality and women empowerment

Reducing child mortality

Improving maternal health; and

Combating HIV/AIDs, malaria and other diseases

The concluding part of the MDG 2005 report is very remarkable and

gives hope that there is possibility for achieving all the MDGs in Nigeria

with sustained effort. This conclusion is quite different from the

conclusions reached by the first report in 2004. It is intriguing that

without providing the basis and reason for the dramatic change, the

2005 states that there is high potential to achieve 3 of the goals (Goals

2, 7 and 8) likelihood to achieve one with strong political will (Goal 1)

and the need for sustained efforts to ensure that the country meets the

remaining four goals (Goals 3, 4, 5, and 6).

The details of the situation in Nigeria as captured in the 2005 MDG

report with regard to each of the goals is presented as follows:

Eradicate Extreme Poverty and Hunger

By 2015, the target is to halve proportion of people living on less than $1

a day, and those suffering hunger. The current rate of reduction in

poverty is too slow to meet the targets set for 2015. If the current rate of


187

poverty reduction is maintained, poverty incidence would reduce to 43

percent as opposed to 21.4 percent by 2015.

Achieve Universal Basic Education

By 2015, the target is to achieve universal primary completion. The

efficiency of primary education has improved over the years, as the

primary six completion rate increased steadily from 65 percent in 1998 to

83 percent in 2001. It however declined in 2002 only to shoot up to 94

percent in 2003.

Literacy level in the country has steadily and gradually deteriorated,

especially within the 15 -24 years group. By 1999, the overall literacy

rate had declined to 64.1 percent from 71.9 percent in 1991. The trend

was in the same direction for male and female members of the 15-24

years age bracket. Among the male, the rate declined from 81.35

percent in 1991 to 69.8 percent in 1999. The decline among the female

was from 62.49 percent to 59.3 percent during the same period.

Promote Gender equality

By 2015, the target is to eliminate gender disparities in primary and

secondary education enrolment by 2005, and achieve equity at all levels

by 2015. At the primary school level, enrolment has been consistently

higher for boys (56 percent) than for girls (44 percent).

Reduce Child Mortality

By 2015, the target reduce by two thirds the child mortality rate. Infant

mortality rate was 91 per 1000 live births in 1990 which later declined to

75 in 1999 but became worse in 2003. It rose to 100 per 1000 live births

in 2003.


188

Improve maternal health

By 2015, the target is to reduce by three quarters the proportion of

women dying in childbirth. The 1999 multiple indicator cluster survey

reported a maternal mortality rate of 704 per 100,000 live births. The

maternal mortality is more than twice as high in the rural areas. The

report did not give comparative statistics.

Combat AIDS, Malaria and Other Diseases

By 2015, MDGs target halting and beginning to reverse the

incidence of HIV-AIDS, malaria and other major diseases. Since the

identification of the first HIV/AIDS case in mid 1980s, the HIV prevalence

rate has continually been on the increase from 1.8 to 5.8 percent in the

period between 1991 and 2001. In 2003, the rate decreased to 5.0

percent and in 2005, it decreased to 4.4 percent.

Ensure Environmental Sustainability

Integrate the principles of sustainable development into country

policies and programmes and reverse the loss of environmental

resources. By 2015 the target is to reduce by half the proportion of

people without access to clean drinking water and basic sanitation. By

2020 achieve a significant improvement in the lives of at least 100

million slum dwellers. The country is endowed with abundant

environmental resources. However, high population growth rate and

increasing demand for these resources threaten environmental

sustainability. The environmental situation is challenged by myriad of

problems, which impact negatively on the utilization of the resources for

development and poverty alleviation.


189

Develop a Global Partnership for Development

Integrate the principles of sustainable development into country

policies and programmes and reverse the loss of environmental

resources. By 2015 the target is to reduce by half the proportion of

people without access to clean drinking water and basic sanitation. By

2020 achieve a significant improvement in the lives of at least 100

million slum dwellers. The level of Official Development Assistance is

increasing but still very low. The problem of market access for products

of developing countries including Nigeria still persists.

It is important to point out that there are limitations of utilizing the

MDGs as a framework for delivering or measuring development. First,

they risk simplifying what development is about, by restricting the goals

to what is measurable. Many aspects of development cannot be easily

measured. Secondly, some of the goals are very modest e.g. the goal to

half the proportion of people living on less than $1 a day by 2015 and

the target to achieve a significant improvement in the lives of at least

100 million slum dwellers by 2020. Finally, some of the targets do not

address the problems holistically. For instance, the MDG on education

talks only of a full course of primary schooling with no reference to

secondary and tertiary education.

Despite its limitations, it is necessary for us to engage the MDGs

for many reasons. First, the MDGs draw together in single agenda

issues that require priority to address the development question.

Secondly, the MDGs have received tremendous endorsement and

backing by world‘s governments. Thirdly, the MDGs have the advantage

being more or less measurable, few in number, concentrated on human


190

development and focused almost on a single date-2015. Another

advantage of the MDGs is that it adds urgency and transparency to

international development. Finally, explicit resource commitments have

been made to achieve the MDGs.

A review of the Nigeria Millennium Development Goals 2005 report

will reveal a number of problems. We shall focus on only three of them.

First, there is the challenge of accurate, reliable, credible and believable

statistics. The draft of the first Nigeria MDG progress report prepared by

NISER stated that at the primary school level ―by 2002, the gender ratio

was 1:04 in favour of girls‘6. This was seriously criticized by CSOs as

not reflecting reality. When the final report came out, it stated that ―at

the primary school level, the gender ratio increased from 0.76 in 1990 to

0.78 in 1995 and 0.96 in 2000‖7 The statistics had changed. In the past

two and a half decade, statistics in Nigeria have always indicated

increasing levels of poverty over the past two and a half decades from

28.1% in 1980 to 65.6% in 1996 (MDG Report ,2004). In the early

2000s, there were many estimates that poverty rate was above 70%. But

President Obasanjo has always insisted without any study that the

poverty level was much lower. Expectedly, when the NPC conducted a

survey in 2004, the poverty level was put at 54.4%. Before this report

was released the 2004 MDG report stated that ―it is unlikely that the

country will be able to meet most of the goals by 2015 especially the

goals related to eradicating extreme poverty and hunger‖. After the

release of the report, the 2005 MDG report stated that ―given the current

policy environment and strong political will, there is also the likelihood of

eradicating extreme poverty and hunger‘.


191

The second problem with the report is that it is development

assistance focused. The 2005 MDG report highlights the status of the

MDGs, the challenges, opportunities and priorities for development

assistance. This is not surprising for development strategy planning in

Nigeria has been essentially external focused. According to the Nigerian

draft interim poverty reduction strategy paper prepared in November,

2001 (the precursor of NEEDS), Nigeria has embarked on preparing its

own PRSP as a requirement for concessional assistance from its

development partners abroad, including the World Bank, the IMF, the

bilateral donors and other sources of such assistance. Given the

importance of the subject and the tight timetable, the Nigerian authorities

fully recognize the need to move forward expeditiously to the timely

completion of the countries PRSP of which this interim PRSP (IPRSP) is

the preliminary step.8

The final drawback of the report that we will like to point out is that

the report did not indicate the policies and practices that need to change

to attain the goals. Meanwhile, scholars and agencies have documented

what needs to be done to tackle poverty and achieve the MDGs. In this

review, we shall outline the recommendations of three agencies: the

World Bank, UNDP and ActionAid International. The World Bank in its

2001 report titled Attacking poverty points out that ―physical capital was

not enough, and that at least as important were health and education‖

and proposed a strategy for attacking poverty in three ways:

Promoting Opportunity

Encouraging effective private investment

Expanding into international markets

Building the assets of poor people


192

Addressing asset inequalities across gender, ethnic, racial and

social divides

Getting infrastructure and knowledge to poor area-rural and urban

Facilitating Empowerment

Laying the political and legal basis for inclusive development

Creating public administration that foster growth and equity

Promoting inclusive decentralization and community development

Promoting gender equity

Tracking social barriers

Enhancing Security

Formulating a modular approach to helping poor people manage

risk

Developing national programs to prevent, prepare for, and respond

to macro shocks-financial and natural

Designing national systems of social risk management that are

also pro-growth

Addressing civil conflict

Tackling the HIV/AIDS Epidemic

The UNDP in its Human Development report of 2003 titled

Millennium Development Goals: A Compact Among Nations to end

Human Poverty pointed out that to achieve the MDGs require policy

responses to structural constraints on several fronts along with stepped

up external support. The report recommended six policy clusters to help

countries break out of their poverty traps:

1. Invest early and ambitiously in basic education and health while

fostering gender equity. These are preconditions to sustained


193

economic growth. Growth in turn can generate employment and

raise incomes- feeding back into further gains in education and

health gains.

2. Increase the productivity of small farmers in unfavourable

environments- that is, the majority of the world‘s hungry people. A

reliable estimate is that 70 percent of the world‘s poorest people

live in rural areas and depend on agriculture.

3. Improve basic infrastructure- such as ports, roads, power and

communications- to reduce the costs of doing business and

overcome geographic barriers.

4. Develop an industrial development policy that nurtures

entrepreneurial activity and helps diversify the economy away from

dependence on primary commodity exports- with an active role for

small scale and medium size enterprises.

5. Promote democratic governance and human rights to remove

discrimination, secure social justice and promote well being of all

people.

6. Ensure environmental sustainability and sound urban management

so that development improvements are long term.

Action Aid International in its report titled Changing Course:

Alternative Approaches to Achieve Millennium Development Goals and

Fight HIV/AIDs shows that there is a yawning gap between MGD needs

and spending realities in poor countries and that macroeconomic

policies enforced by the IMF block poor countries from being able to

spend more on education, health and economic development.11 The

report argued that for the MDGs to be achieved, the world must start to

change course now and adopt at local, national and international levels

alternative economic policies that allow for much higher long-term public

investments in health, education and development.


194

CAN NIGERIA MEET THE GOALS?

The question of whether Nigeria can or cannot meet the MDGs is a

crucial one that should agitate the minds of politicians, government

bureaucrats, civil society activists and development workers. In our view,

there is no straightforward answer. It can be answered either in the

negative or the affirmative. The NEEDS document clearly states that ―if

present trend continues, the country is not likely to meet the Millennium

Development Goals.‖ On the other hand, the 2005 report gives the

conditions for meeting the goals: strong political will and sustained

efforts. Perhaps, a better way to frame the question is what can Nigeria

do to meet the MDGs in 2015? In our view, Nigeria has sufficient

resources to meet the MDGs in 2015. But for this to happen, as argued

above, the country will have to change course in the conceptualization

and implementation of policies and programmes to achieve the MDGs.

One good initiative in Nigeria designed to meet the MDGs is the

Oversight of Public Expenditure in Nigeria (OPEN) set up to monitor the

Debt Relief Gain (DRG). Two issues make this initiative unique. The first

is the leadership of the process which has been participatory, open,

transparent and all inclusive with participation of private sector and civil

society. The second and perhaps most important is that systems have

been put in place to track resources. This is perhaps the model that

should become the norm in every ministry, department and agency at all

levels of government.

It must be however be recognized that development is a complex

issue and goes beyond allocation of Debt Relief Gains to some MDG

Ministries. A scholar once argued that development requires growth and

structural change, some measure of distributive equity, modernization in


195

social and cultural attitudes, a degree of political transformation and

stability, an improvement in health and education so that population

growth stabilizes, and an increase in urban living and employment.13 In

our view, social transformation will require good change and progress in

the following areas:

Transparency and Accountability

Several analyses of the challenges of development in Nigeria has

identified lack of transparency and accountability as a major obstacle.

Accountants in Nigeria have a great role to play in this regard. They

must change the way auditing is done from financial auditing of certifying

payments and receipts to systems auditing and examining the whole

concept of value for money. Otherwise, accountants and auditors will

just be certifying corruption.

Tackling Institutional Constraints

Delivering services to the people requires effective and efficient

institutions that follow due process and standards.

Pro-Poor Growth

It is clear that there has been economic growth in Nigeria in the

last few years above 5 percent. But economic growth alone cannot lead

to achievement of the MDGs unless the growth is pro-poor. As President

Obasanjo stated, ―We must not continue to stress the pursuit of a high

growth rate in statistical terms and fail to reduce the social and economic

deprivation of a substantial number and group of our people. We must

not absolutely pursue wealth and growth at the expense of inner well

being, joy, satisfaction, fulfillment and contentment of human beings.‖14

Structural Change


196

To achieve the MDGs in Nigeria, there is the need to change the

structure of the economy in such a way that the economy is not

dependent on only one product but diversified economy and expanding

the industrial sector.

Distributive Equity

Deliberate efforts and policies must be put in place to redistribute

income. The MDGs will be met if the poor and excluded in society are

empowered to meet their basic needs.

Social and Cultural Re-orientation

here is the need for social and cultural re-orientation to meet some

of the goals. For instance, the goals on women and girls require a new

kind of mindset to achieve them.

Political Transformation

The political system and the way it engenders commitment, participation

and patriotism by the people contributes immensely to national

cohesion, peace and stability and development.

Human Development

Development implies the fulfillment of basic human needs

including those for education and health.

Urban Development

The growth of urbanization is definitely increasing and there will

probably be more people in urban areas than rural areas by 2015. There

must be urban development process that is inclusive and not based on

dislocation of slum dwellers without alternatives.

Employment

Employment is the surest way of achieving the MDGs because

individuals will receive income and will contribute to the economy.


197

Transformation of Power Relations

Whenever power is concentrated in the hands of a few, they will

utilise such powers to accumulate wealth. To achieve the MDGs will

require transformation of power relations and challenge of patriarchy.

Partnership with development partners

It has been documented that in order to make adequate progress

towards achieving the MDGs, Nigeria will require additional external

financing averaging about US $6.4 billion annually between 2005 and

2008.15 Even if the resources in the country are used effectively there

will still be challenges in meeting the MDGs. Meanwhile, Nigeria is

seriously under aided. Nigeria receives only US $2 per capita in ODA

compared to the average for Africa of US $28 per capita. In addition,

meeting the MDGs will require partnership between government, the

public sector and the private sector. In particular, it will require

transformists from the public sector, civil society, media and private

sector to build a critical movement of people advocating for and

implementing change.

CONCLUSION

The problem of development is a global challenge and the MDGs

is a response by world leaders. There are limitations to utilizing the

MDGs as a framework for delivering or measuring development. But

they provide a platform to engage the development process. The

situation in Nigeria indicates that there are challenges in meeting the

goals by 2015. For Nigeria to meet the goals in 2015, there is the need

to formulate and implement policies that will promote transparency and

accountability; overcome institutional constraints; promote pro-poor

growth; bring about structural change; enhance distributive equity;


198

engender social and cultural re-orientation; engineer political

transformation; promote human development; practice inclusive urban

development; generate employment and transform power relations.

References

Milen, Anneli (2001): What do We Know About Capacity Building? An overview of existing knowledge and good practice, World Health Organization (WHO), Geneva, 2001.

Dreesch, Norbert, et al (2005a): An Approach to estimating Human Resource Requirements to Achieve the Millennium development Goals, Oxford University Press,

Dreesch, Norbert, et al (2005b): ―An Approach to estimating Human Resource Requirements to Achieve the Millennium development Goals‖, Health Policy and Planning Volume 20, No 5, pp. 267-276.

Maynard, B.K. (2003): ―Planning Human Resources in Health Care: Towards and Economic Approach‖, An International Comparative Review: Ottawa: Canadian Health Services Research Foundation.

Hall, T. and Mejia Hall (1978): Health Manpower Planning: Principles, Methods, Issues: World Health Organization.

Markham, C.D., Stein C. et al (1997): Back to the Future: A Framework for Estimating Health Care Human Resource Requirements. Canadian Journal of Nursing Administration, 10:7-23.

WHO (2001): Human Resources for Health: A Toolkit for Planning and Management. Geneva: World Health Organization.

Federal Ministry of Finance (2000): National Capacity assessment Report of the Federal Republic of Nigeria in collaboration with the World Bank. Abuja: Federal Ministry of Finance.

Federal Government of Nigeria (2007): Landmarks: Achievements of the Olusegun Obasanjo Administration, Federal Ministry of Information and Communication, Abuja.

Sambo, B. I. Myths and Realities about Economic Recession in Nigeria. (1998). Kano: State Polytechnic Publishers.


199

THE SEVEN-POINT AGENDA

LEARNING OBJECTIVES

At the end of the session, participants will be able to:

(i) explain the concept of 7-point agenda;

(ii) List the items that constitute the 7-point Agenda;

(iii) Analyse each of the items so listed;

(iv) Relate 7-point Agenda to NEEDS;

(v) identify the government‘s efforts so far at implementing the

7-point Agenda through budgetary provisions.

INTRODUCTION

It should be recalled that an assumption of office, specifically

during his inaugural speech on May 29, 2009, the President of the

Federal Republic of Nigeria, Alhaji Umaru Musa Yar‘adua introduced the

7-point Agenda as the policy direction of his administration within its

four-year tenure. The President equally introduced Vision 20: 2020 as

an ultimate goal of Nigeria. By Vision 20: 2020 is meant that by the year

2020, Nigeria will be among the 20 most developed economies in the

World. A relationship established between the 7-point Agenda and

Vision 20: 2020 is that whereas vision 20:2020 is a long term goal, the

Seven-point Agenda is a medium term development strategy. By faithful

implementation of the 7-point agenda, it is hoped that Nigeria will attain

the Vision 20:2020.

The 7-point Agenda can equally be identified within the reform of

the Yar‘adua administration which could be traced to the NEEDS I

(2003-2007); and NEEDS 2 (2007-2011). All these are guided by the

Millennium Development Goals (MDGs) which provides the yardstick for


200

assessing the performance of all the countries of the United Nations

including Nigeria that appended their signature on the MDGs as a

developmental goal of each of them spanning the period 2000-2015. 7-

point agenda could therefore be seen as an implementable medium for

achieving other listed developmental goals.

What is 7-point Agenda?

7-point agenda could be referred to as the policy direction of the

Yar‘adua‘s administration. As a policy, it has a short period of

implementation. Hence, each of the items of the Agenda should feature

prominently in Appropriation Bills annually. Their reflection in the Bills

and subsequent execution through the budget goes a long way in

ascertaining whether the agenda is another government rhetorics,

slogan, myth or reality.

The points are listed hereunder:

1. Transport Sector;

2. Power and Energy;

3. Food Security;

4. Wealth creation;

5. Land Reforms;

6. Security;

7. Education

Relating each of the above to the Nigerian situation we find that

with regards to the transport sector with its poor road networks, it is an

inefficient means of mass-transit of people and goods. For power and

energy – development of sufficient and adequate power supply are

aimed at enhancing Nigeria‘s ability to develop a modern economy and

industrialized nation by the year 2015. In the area of Food Security, an


201

agrarian-based that will be revolutionalized through modern technology

etc, to lead to a 5 – 10 folds increase in yield and production. For wealth

creation, ―wealth creation through diversified production‖. In the area of

Land Reforms, changes in the land laws and emergency of land reforms

that optimize Nigeria‘s growth through the release of lands for

commercial farming and other large scale businesses like the private

sector. On security - …. Security should be seen as not only a

constitutional requirement but also as a necessary infrastructure for the

development of modern Nigerian economy‖ Education … reforms in

educational sector will ensure …. Strategic educational development

plan with emphasis on learning of skills in science and technology so

that our nation can breed her own share of future innovators and

industrialists.

3. 7-POINT AGENDA AND NEEDS (1 & 2)

It should be recalled that NEEDS was premised on the following

pillars:

(i) Empowering the people in form of social charter;

(ii) Promoting private enterprise (via the creation of a

competitive private sector);

(iii) promoting result-oriented sectoral strategy and ensuring

regional integration; and

(iv) Changing the way government does its work (by creating an

efficient and responsible public sector, promoting

transparency and accountability, and improving security and

administration of justice).

The policy thrusts initiated for achieving MDGs under the auspices

of NEEDS are:


202

For Goals 1 : Eradicate Extreme Poverty and Hunger

- Institutional rationalization;

- Outsourcing programmes;

- Monetization of fringe benefits;

- Special programme for food security;

- Strategic Grain Reserve;

- Seed Production Programme;

- The Fadama II Programme;

- The Fertilizer Revolving loan;

- Transformation of the National Bureau of Statistics database for

poverty monitoring;

- The Strengthening of NAPEP;

- The Small and Medium Scale Investment Equity Insurance

Scheme (SMIEIS).

For Goal 2: Achieve Universal Basic Primary Education

- Universal Basic Education;

- The Child Rights Act;

- Education Management Information System and Education

Sector Analysis;

- Girl – Child Education Programme;

- Adult Literacy Programme.

For Goal 3: Promote Gender Equity

- National policy on Women;

- Prohibition of violence against women;

- Strategy for acceleration of girl education in Nigeria

- Female functional literacy for health


203

For Goals 4, 5 and 6 on Health

- Health sector Reform Programme;

- The National Health Insurance Scheme;

- Integrated Child survival and Development;

- The Roll – back Malaria Programme;

- The decentralization of HIV and AIDs Management – NACA,

SACA and LACA;

- The transformation of NACA from a Committee to an agency

status;

- Expanded Programme on Immunization – polio, etc.

For Goal 7: Environmental Sustainability

- National Erosion and Flood Control Policy;

- National Environmental Sanitation Policy;

- The National Industrial Effluent Limitation Regulation and

Pollution abatement in industries and facilities generating

waste;

- Zero tolerance to gas flaring by 2008, etc.

For Goal 8: Develop a Global Partnership for Development

Delisting from the erstwhile pariah state thereby gaining the largest

debt in Africa which led to the exist from Paris and London Clubs of

Creditors.

7-POINT AGENDA AND NEEDS

The 7-Point Agenda undertakes the following:

(i) Sets the sectoral priorities for implementing NEEDS. It

refocuses the policy priorities as articulated in NEEDS 2 in a

way that sustains the gains of economic reforms;


204

(ii) it fast-tracks the process of achieving higher standard of

living and better quality of life of most Nigerians;

(iii) Areas of policy priorities are:

Sustainable growth in the real sector of the economy;

Physical infrastructure: Power, energy and transportation;

Agriculture and Land reforms;

Human Capital development: education and health;

Security, law and order;

Combating corruption; and

Niger Delta development.

It must be stated that MDGs, NEEDS (1 and 2), 7-Point Agenda

and Vision 20:2020 are all reinforcing and non-contradictory. Whereas,

MDGs serve as the framework for achieving sustainable human

development, Vision 2020 is the framework for ensuring economic

transformation that could further create sustainable condition for

financing human development. NEEDS 1 and 2 and 7-Point Agenda

constitute the how of making MDGs and Vision 2020 a reality.

4. 7-POINT AGENDA AND 2009 BUDGET

Budget generally as conceptualized by Akanni (1987:319) is ―a

summary of statement of plans expressed in quantitative terms, that

guides individuals or an accounting entity in reaching financial or

operational goals‖. In addition, budgets are forecasts of future activities

and when prepared in numerical terms, they may not necessarily be in

Naira and Kobo. It is an instrument for allocating resources. With the

foregoing definitions, our concern here is to ascertain how seriously the

Government is pursuing implementation of the 7-point agenda.


205

As stated by Dr. Tanimu Yakubu, the Chief Economic Adviser to

the President, the 2009 Budget as conceived, is a clear demonstration of

the Government‘s determination to achieve its long-term vision objective

through faithful implementation of the 7-point Agenda which itself is a

medium term development strategy. The budget according to him, was

premised on the need to, partly address the historical bottleneck to

budget implementation and performance in the country, and also to

achieve the well defined deliverables that constitute the 7-Point Agenda.

Since the budget was based on the Vision of Mr. President, it

necessarily means that the various items of the 7-Point Agenda provide

the focal points for assessing the success or failure of the 2009 Budget.

Some of the measurable targets and outputs envisaged in the 2009

budget are indicated hereunder:

1. CRITICAL INFRASTRUCTURE

(a) Power: The Budget envisages the goal of attaining

6000mw of power generation in 2009 (over 30%

increase). It set aside N200 billion for implementing

gas projects, aimed at acquiring capacity to deliver 1.2

billion set of gas to domestic market.

Some of the projects here include:

- National Domestic Gas Projects;

- Trans-Saharan Gas Pipeline projects;

- Calabar-Umuahia-Ajaokuta Gas Pipeline;

- Ajaokuta-Abuja-Kano Gas Pipeline;

- Mambilla hydro-electric power generation;

- Gas pipeline to PHCN Delta IV;


206

- Gas pipeline to power plants including

Omotosho, Papalanto and Aloji, etc.

(b) Transportation Sector – Allocations were made to

achieve the following sub-sectoral projects:

(i) Rail Transport

Modernization of locomotives, coaches and

wagons; rehabilitation works on tracks, stations,

bridges, signaling equipment and culverts;

procurement of tools, cranes and other railway

equipment, etc.

(ii) Marine and Inland Waterways transport

- completion of Ajaokuta-Warri Line to Delta Steel

Jetty;

- Dredging of lower River Niger.

(iii) Road Transport – Nationwide works

- Maintaining 30,000 km of roads (for completion in

3 years);

- Construction and rehabilitation of 3,293 km of

roads;

- Engineering design of 699.05 km of roads;

- Completion of 2,821m length of bridges etc.

2. FOOD SECURITY AND AGRI-BUSINESS

The Federal Government proposed expenditures in the agriculture

sector is aimed at raising the sector‘s contribution to GDP to higher

levels through on-going projects and targets over the next three years

including:


207

(a) Counterpart funding for FADAMA III, IFAD and AFDB

projects, etc;

(b) Assistance to State‘s production initiatives through 40%

contribution to financing production infrastructures in

the State to attract agribusiness investments;

(c) Rehabilitation and construction of dams to increase irrigated

lands and acquire power generation capabilities at

some of the dams.

(d) Rehabilitation and expansion of irrigation infrastructure to

add N150,000 hectares of irrigation in addition to

optimization of currently N270,000 hectares of irrigation

infrastructure.

(e) Increasing land under cultivation by 5% in the next season

and 15% over a period of 3 years.

(f) Increase in yield by 50 – 250% of different crops, and 20%

increase in production of targeted commodity crops.

(g) Provision of N200billion credit for commercial agriculture

development.

(h) 35% increase in domestic agribusiness and 15% increase in

export of selected commodities.

(i) Increase in fish production by 230% from 650,000 metric

tomes to 1.5m metric tones per annum.

(j) 40% increase in availability of rural infrastructure (social,

energy hectare and landing)

(k) Increase in agriculture sectors contribution to GDP by at

least 5%.


208

In addition, Government has embarked on the amendment of the

Land Use Act, in order to remove the obstacles and inconveniences of

transacting in land for housing and agriculture and being out the inherent

capital in landed assets.

3. WEALTH CREATION AND HUMAN CAPITAL DEVELOPMENT

(a) The 2009 budget has adequate and measurable provision to

address the issues of wealth creation, human capital

development and guarantee of security to life and property.

(b) Under the health sector, government made provisions in the

2009 budget for

(i) Completion of ongoing projects for modernization of seven

(7) specialist hospitals in Kaduna, Maiduguri, Kano, Calabar,

Enugu, Abeokuta and Lagos.

(ii) Completion of ongoing projects for modernization of three (3)

Teaching Hospitals in Calabar, Awka and Ife.

4. INTERNAL SECURITY

Government‘s prioritization has been reflected in the 2009 budget

including allocation for security and community policing in seven (7)

cities ( Abuja, Kano, Lagos, Port-Harcourt, Maiduguri and Onitsha)

identified as having the highest incidence of criminal activity will a view

to reducing this by 40% in 2009.

5. NIGER DELTA

Towards implementation of the Administration‘s Niger Delta

Agendum, provisions were made in the 2009 budget for

(i) New road projects such as the Warri – Kaima Road

(ii) Erosion control projects

(iii) Forestry Projects


209

(iii) Conservation and Development of Costal Ecosystem

Guinea

Current Large Marine Ecosystem)

(v) Youth Training and Development Centres in Niger Delta

(vi) Digital Security Surveillance

(vii) Acquisition of marine boats and equipment

(viii) Provision of observation posts along major highways in the

country.

Overall, there is a determination to shift focus from resource

commitment to MDAs, to considering what was actually delivered by the

various MDAs. To ensure improved efficiency, effectiveness and

productivity of governments expenditure, the Budget Office of the

Federation, working with the National Planning Commission, office of the

Chief Economic Adviser and the MDG office, has designed a framework

to monitor and evaluate the budget performance quarterly budget

monitoring and evaluation reports to be published in line with the

provisions of the fiscal responsibility Act, 2007.

CONCLUSION

Strict pursuit of the 7 – point Agenda, we aver, will widen

opportunities through provision of functional infrastructure, enhanced

human capacity, wealth creation and increased emphasis on food

security and affordable housing. Realization of the key Agenda items in

the short and medium term namely: addressing the challenges of the

critical infrastructure gap, bringing succor to the chronic socio- economic

crisis in the Niger Delta, achieving enhanced human capital

development, ameliorating the inadequacies of our food sector,


210

implementing land tenure and home ownership refocus aimed at freeing

the wealth in our land resources, addressing the challenges of National

security and creating a conducive environment for wealth creation

would deliver on the 2020 vision.

REFERENCES

Federal Republic of Nigeria (2004): National Economic Empowerment and Development Strategy (NEEDS) NEEDS Secretariat, National Planning Commission Federal Secretariat, Abuja.

Federal Republic of Nigeria (2007), Nigeria Millennium Goals 2006

Report (Abuja: The National Planning Commission) Maduabum, C. P. (2006), Reforming Government Bureaucracies in

Nigeria: The Journey so far (Badagry: ASCON Press) Maduabum C. P. (2008), The Mechanics of Public Administration in

Nigeria (Lagos: Concept Publications)

Yakubu, T. (2009) ―Yar‘Adua‘s 7 – Point Agenda and Vision 2020: Political Slogans or Economic Growth Mechanisms?‖, The Nation Newspaper Tuesday, April 7.


211

VISION 2020 AND THE PUBLIC SERVICE:

PROBLEMS AND CHALLENGES

Learning Objectives

- To remind/upgrade the knowledge of the participants on the

Vision : 2020.

Specifically:

(i) To explain the concept of Vision and Visioning.

(ii) Identify the objectives and processes of the vision 2020.

(iii) Outline the Institutional arrangement for implementing the vision:

2020.

(iv) Highlight the Role of the Public Service in achieving the Vision.

(v) Discuss the inhibiting factors and how to overcome them.

INTRODUCTION

The Vision 20:2020, the MDGs and the Seven Point Agenda serve

as an important roadmap that will help the President Musa Umaru Yar-

Adua‘s Administration to confront the challenges of nation-building. The

effective implementation of these comprehensive programmes of

government will depend on the availability of competent, efficient,

responsive and result-oriented public service machinery. This

underscores the considerable efforts of government in the last five years


212

to transform and re-invent the public service through sustained reformed

measures.

The Vision 20:2020 and the MDGs aims at moving Nigeria‘s

economy into the league of the World‘s 20 largest economies by the

year 2020 and 2015 respectively. It is also a dream that seeks to ensure

collateral development of the country and to put its economy on a fast-

track to self-reliance and raise the people‘s standard of living. Given the

targets of these programmes, many have expressed skepticism about its

realism. While, they see nothing wrong with the concept, however, they

point to the nations poor state of infrastructure and a weak public

service.

Vision 2020 Committee is assigned the task to formulating a

strategic agenda for the nation. From policy pronouncements by top

functionaries of Government and the various policy reform measures

that are being implemented, this strategic agenda is to incorporate policy

reform measures that are being implemented in order to strengthen

good governance, maintain an enabling policy environment and macro-

economic stability, provide basic social services and infrastructural

facilities, protect the vulnerable, and implement human centred

development programmes. These policy and economic reform


213

measures being implemented by Government constitute a shift in the

role of Government from a dominant actor in national development to a

partner in development policy management.

VISION 2020 Committee is a manifestation of this paradigm shift. For

the first time Nigeria‘s development planning process has shifted

significantly from an exercise by technocrats in the civil service, the

Universities and Research Institutes to a corps of stakeholders from the

public service, private sector and civil society. The composition and

operational principles of VISION 2020 Committee reflect this new role of

Government as a partner in the development process: Thus the new role

of Government as a facilitator and catalyst is being concretized with the

establishment of VISION 2020 Committee.

VISIONING : CONCEPT

Vision: ―the ability to think about or plan the future with great

imagination or wisdom‖.

– Oxford Advanced Learner‟s Dictionary.

Vision: ―is about a mental picture of a future state of being which is

superior to the current situation‖. - Chief Ernest Shonekan. CBE.


214

VISIONING:

―is a kind of long term strategic planning that will enable a nation to

fully articulate and judiciously allocate resources towards

economic development and the general advancement of the

citizenry‖. - Prof. A. D. Yahaya

―an approach to the Management of an organisation or country strongly rooted in the belief that it is better to focus on the future as we can neither alter the past nor do much about the present‖.

- Shonekan.

VISION 2020

• The Blueprint for Nigeria‘s successful Development:

- Economically

- Socially

- Politically

*Success measured by improved quality of life of all Nigerians.

INSTITUTIONAL ARRANGEMENT FOR NIGERIA VISION 2020

1. NATIONAL COUNCIL ON VISION 2020

The National Council on Vision is at the Apex, providing

Leadership and direction to galvanize the whole nation, with the

president as the Chairman.


215

2. NATIONAL STEERING COMMITTEE

This Committee consists of about 70 persons drawn from the

public and private sectors with responsibility for developing the

Vision Implementation Guidelines, Monitoring and Evaluation

Strategy, ensuring a bottom-up approach by which all key

stakeholders, Ministries, Departments and Agencies (MDAs) as

well as States, Local Government Areas (LGAs) are encouraged to

prepare and implement their ―Component of the Vision: 2020‖.

3. NATIONAL TECHNICAL WORKING GROUP

Each NTWG will comprise 20-25 experts in specific thematic

areas drawn from both public and private sectors with expertise

and passion for the area. They will undertake specific studies or

research work to provide data necessary for the working group

report.

4. STAKEHOLDER DEVELOPMENT COMMITTEE

This Committee includes Federal Ministries, Departments

and Agencies (MDAs) State Governments and other Key

Institutions. Each Stakeholder group will prepare its Vision 2020

thoughts and ideas based on the guidelines approved by the

National Council.


216

WHY VISION 2020

(a) Breaking out of our development inertia.

(b) Fashioning out an effective development programme for the

country.

(c) Expanding national development planning beyond public sector

bureaucrats, by including leaders of thought and professionals

from the other spheres of our national life.

(d) Preparing the country for the dawn of the 21st Century; and

(e) Working out an achievable National Vision to guide our

collective efforts to realise the country‘s future prosperity, such

that, by the Year 2020, the country will be enroute to being an

economically prosperous, politically stable and socially

harmonious nation.

OBJECTIVES/TERMS OF REFERENCE

Implementation Plan

- Goals and Targets.

- Strategies

- Institutional arrangements

- Action Plan/Time-Table


217

BENEFITS OF VISION 2020

What will Nigeria gain from such a programme?

Some of the expected benefits will include:

(i) A national consensus, as a result of which all Nigerians will share

a common focus for development and voluntarily work towards the

achievement of the vision and national cohesion.

(ii) A sustainable and rapid socio-economic development of the

country.

(iii) The restructuring of our society in such a way as to reduce any

socio-economic injustices and eradicate extremes levels of

poverty.

(iv) A more open economy that is export oriented and which has the

whole world as the market for its industrial products.

(v) An industrial sector that can produce goods that are competitive in

the most advanced segments of the World market.

(vi) A nation at peace with itself and a United Nigerian nation with a

sense of common and shared destiny.

(vii) A nation that is ethnically integrated living in harmony and in full

and fair partnership with its component peoples.


218

(viii) A scientifically innovative society that will not only be a consumer

of technology, but also a contributor to the scientific and

technological civilization of the future.

(ix) A fully caring society in which the welfare of individuals, particularly

the handicapped and the disabled will be of concern to all.

(x) A society with high moral and ethical standards and whose citizens

value and observe international norms and standards.

(xi) A liberal and tolerant society in which all Nigerians will be free to

practice and profess their customs, culture and religious beliefs,

and yet feel that they belong to one nation.

(xii) A prosperous country with a dynamic, robust and resilient

economy; and

(xiii) A country in which the present generation of Nigerians will become

inspired to do things which they believed could only be dreamed

about but not achievable in their own life-time.

VISION 2020 AND CHALLENGES TO THE PUBLIC SERVICE

OBSERVATIONS

- The Civil Service is the main instrument through which government

carries out its business.


219

- The Public Service plays a vital role in the formulation and

implementation of Government policies.

- It also provides a facilitative and lead role for the performance of

other sectors of the economy.

- Therefore, a Public Service that is modern, efficient, and effective

is critical to the success and performance of government and its

programme i.e. Vision: 2020.

- The achievement of the country‘s set targets for Vision: 2020 will

depend on the efficiency and capacity of the Public Service.

ROLE OF THE CIVIL/PUBLIC SERVICE

The 1995 Review Panel on the Civil Service in its Report identified

the following functions of the Civil Service; these are;

(i) To assist the Government in the formulation and Implementation of

its policies.

(ii) To operate an administrative system that is development

conscious, performance oriented, efficient and effective.

(iii) To promote and assist the growth, dynamism and the social

responsibility of private enterprises within the framework of

national economic objectives.

(iv) To assist in promoting national Unity and Integration.


220

(v) To assist Government in the generation and mobilization of

revenue and judicious expenditure of public funds.

POSITIONING THE PUBLIC SERVICE AND CHALLENGES

The fundamental question which easily comes to mind is ―How well

prepared are the various public service organisations to respond to and

implement these changes.

INHIBITING FACTORS

Ayida Review Panel on the Civil Service Reforms of 1995

identified the following as some of the factors inhibiting the effective

performance of the Civil Service.

(i) Political Instability

(ii) Interference with the work of Civil Servants and the non-

observance of the laid down rules and procedures.

(iii) Inadequate provision of financial and material resources.

(iv) Politicisation of the public service

(v) Poor remuneration

(vi) Slow response to Technological changes and improved

procedures necessary in running a modern organization.

(vii) Insecurity of tenure.

(viii) Corruption.


221

Current Diagnostic studies (2001) described the Nigerian Public

Service as:

- Lethargic and slow in official decisions and actions.

- Insensitive to the value of time.

- Irregular attendance at work.

- Nepotic

- Wastefull with government resources.

- Slow to change.

- Unresponsive and discourteous to the public.

- MDA‘s role ambiguity i.e. unclear definition of roles.

- Breakdown of disciplinary System and Code of Ethics.

RE-INVENTING THE PUBLIC SERVICE FOR THE CHALLENGES OF

VISION:2020

Arising from the above background, the role of the public service

must therefore be refined and refocused to meet the challenges of the

Vision:2020. The effective implementation of this programme will

depend on the availability of competent, efficient, responsive and

results-oriented public service machinery. This underscores the

considerable efforts of government in the last five years to transform and

re-invent the public service through sustained reform measures.

To fast-track the achievements of the Vision:2020 efforts geared

towards building a robust public service for Nigeria is very necessary


222

through the introduction of new management practices while the training

of public servants should be given more attention.

Other measures necessary to revitalize, re-orient and strengthen

the capacity of the public service for efficient and effective performance

and the achievement of the Vision : 2020 include:

(i) enhancing the capacity of the public service in the areas of

policy analysis, implementation, monitoring, evaluation and

review.

(ii) Adoption of private sector management systems and

techniques.

(iii) Adoption of best practices in governance and public sector

management through the application of techniques such as

those targeting Total Quality Management (TQM) performance

management and customer service orientation.

(iv) Inculcating the values of integrity, accountability and

transparency.

(v) Encouraging and building Partnership with the Private Sector

(PPP) for the management of the economy.

(vi) Promoting investor/customer – friendly orientation in the public

service performance.

(vii) Financial Management Improvement measures.

(viii) Inculcating a management culture which will change the values

and attitudes of the public servant to search for and contribute

to continuous improvement.

(ix) Introduction of ICT as a tool for Management of Change and the

Modernization of the public service.

(x) Training and Capacity Building

(xi) Improved Incentives and Motivation.

(xii) Anti-corruption measures and accountability etc.


223

REFERENCES

Adamolekun, Kunle (2008) The NESG and Vision:2020 in Thisday Newspapers of 29th October 2008. Ida, Ibrahim M. (1997) Positioning the Civil Service for Challenges of Vision

2010. A presentation delivered in ASCON Forum on 27th May, 1997, Badagry.

Musa Ahmadu (2006) Improving the Performance of the Civil Service

through the New Public Management System in the Civil Service News. Quarterly Publication of the Federal Civil Service, OHOSF, Abuja.

Shonekan, Ernest A. O. (1999) The Public and Private Sector Partnership

for Vision:2010 in proceedings of ASCON 25th Anniversary Conference (Ed) Ali Yahaya and Ayodele Fagbemi, ASCON Press, Badagry.

Yahaya, A. D. (2000) Human Capacity Building in the Nigerian Public

Service: Current Challenges and Future Challenges in Africa Journal of Public Administration and Management Vol. XII, No. 2, December 2000.

Yakubu, Tanimu (2009) Yar-Adua Seven Point Agenda and Vision 2020:

Political Slogans or Economic Growth Mechanisms? Paper delivered during the Nigerian Guild of Editors Conference in Kaduna in ―The Punch Newspaper of April, 16th 2009.‖

Review Panel on the Civil Service Reforms: Main Report. Federal Government

Press (1995) Abuja.


224

SERVICE DELIVERY IN NIGERIA

Learning Objectives

At the end of the session, participants should be able to

• define some relevant terms

• explain the background to SDI in Nigeria

• describe progress made as well as the Challenges

• suggest the way forward

Agenda

To enable us achieve the objectives, the following will be discussed.

• Definition of basic terms

• Background to Service Delivery Initiative in Nigeria

• Implementation of the initiative/ Success story

• Challenges in driving the process

• The way forward

Definitions

There are several definitions of service as there are authors.

However, a few definitions shall suffice starting with the definition of

service.

According to Microsoft® Encarta® 2008, Service refers to work

done by somebody for somebody else. It also means providing people

with what they want (Oxford Advanced Leaner‟s).

The following examples will serve as illustrations

• Customers in a restaurant want more than a meal

• Guests in hotels want more than a room


225

• Customer want more than just the product or service that is offered

– they also want to be treated well

Service failures occur whenever any product or service fails to

meet the customer‘s expectations

The Government and service delivery

The primary purpose of Government is to improve quality of life of

citizens. However, to do this, Ministries, Departments and Agencies are

established to provide services to the people. In fact, the public service

is the only contact that most people have with Government.

Arising from this, public institutions have a social obligation to

render service to the citizens and therefore the citizens have legitimate

expectation to be provided with good services without a commercial

motive. However, more often than not, because of the nature of services

they are meant to provide, public institutions have no real competitor and

the citizens have no choice but to use government services. This

notwithstanding, it must be noted that ―Service is what we (public

servants) offer ourselves for. And service is what the people are entitled

to expect from us‖.

Background to the Service Delivery Initiative

The Government recognised that no reform process will be

credible or sustainable without demonstrable service delivery. Therefore,

service delivery is the object and subject of all reform efforts (Famro,

2008).

In December 2003, a team of experts was commissioned to:

• review the state of service delivery in Nigeria;

• examine institutional environment for service delivery;


226

• reflect on people‘s views and experiences; and

• draw a road map for service delivery programme.

Before then, the President had declared that ―our public offices

have for too long been showcases for the combined evils of inefficiency

and corruption, whilst being impediments to effective implementation of

government policies. Nigerians deserve better. And we will ensure they

get what is better!‖

The team submitted its report titled ‗Service Delivery in Nigeria: A

Roadmap‘. The highlights of the report as published in February 2004

are as follows:

• Services are not serving people, they are inaccessible, poor in

quality and indifferent to customers‘ needs

• Public confidence is poor, inequality high, and institutional

arrangement confusing and wasteful

• There is need for a far reaching transformation of Nigerian society

through a service delivery programme as a step in the process of

moving to a government that is more in touch with the people…

Following the submission, a special Presidential retreat was

convened in March 2004, to deliberate on the report. At the end of the

retreat, the body came to a conclusion to enter into a „Service Compact

With All Nigerians‟.

The Compact states that:

• ―We dedicate ourselves to providing the basic services to which

each citizen is entitled in a timely, fair, honest, effective and

transparent manner…‖


227

The implications of the compact include the following:

• Establishment of a SERVICOM Office within the Presidency to

operationalize government‘s commitment to service delivery.

• Every Ministry, Department and Agency is required to produce a

service charter derived from their mission statements, create a

SERVICOM Unit, and appoint a Nodal Officer (a deputy director) to

head the unit with a complement of 3 other staff to drive service

delivery and improvements in the MDA.

The main functions of the SERVICOM Office are to:

• Co-ordinate the formulation and operation of SERVICOM Charters

and Service Improvement Plans in MDA‘s

• Monitor and report progress and performance of MDA‘s under

SERVICOM obligations through Compliance Evaluations using the

SERRVICOM Index

• Carry out surveys of services and customers‘ satisfaction

• Publicize charters and sensitize the citizenry to demand quality

service as a right at all times

Five Elements of Quality Service

According to Aribisala (2009), there are five elements of Quality

Service as discussed below.

Reliability

• The ability to provide what was promised, dependably and

accurately


228

• Action strategy: make sure that you correctly identify customer

needs, promise only what you can deliver, and follow through to

ensure that the product or service was received as promised

Assurance

• The knowledge and courtesy of employees, and their ability to

convey trust and confidence

• Action strategy: take the time to serve customers one at a time.

Provide service assertively by using positive communication

techniques and describing products and services accurately

Tangible

• The physical facilities and equipment and the appearance of

personnel

• Action strategy: maintain workspaces in a neat, orderly manner,

dress professionally, and maintain excellent grooming and hygiene

standards

Empathy

• The degree of caring and individual attention provided to

customers

• Action strategy: listen for emotions in your customers‘ messages.

Put yourself in their place and respond compassionately by

offering service to address their needs and concerns

Responsiveness

• The willingness to help customers and provide prompt services


229

• Action strategy: project a positive, can-do attitude. Take immediate

steps to help customers and satisfy their needs

Five Drivers of Customer Satisfaction

In its book ―SERVICOM Story‖, the SERVICOM Office writes that

customer satisfaction is the overriding consideration of service delivery.

Extensive research consultations and surveys in Nigeria some few years

ago showed that customer satisfaction is broadly driven by the

followings:

Service delivery

Timeliness

Information

Professionalism

Staff attitude

Implementation/ Success story

The implementation of service delivery can be pinned down to the

following activities and or programmes.

Setting up of structures

• Posting of staff to the Ministerial SERVICOM Unit (MSU)

• Inauguration of the MSU

• Formation of National Council of Nodal Officers

• Annual General Meeting of Nodal Officers

• Resource Centre interaction

Charter formulation

• Formulation of local and integrated Charters by MDAs


230

• Publishing and displaying the Charters

Capacity building

• Establishment of SERVICOM Institute

• Mounting of various training programmes

• Sensitization programmes

• Networking seminars

Compliance evaluation and reporting

• Identification of the MDA

• Scoping

• Communicating with the MDA

• Mystery shopping

• Actual evaluation

• Presentation and publishing of report

Service improvement programme

• Helping evaluated MDAs to develop Service Improvement Plan

(SIP)

• Assisting MDAs with good SIP to get funding

• Monitoring implementation of SIP

Establishing Pilots

• The SERVICOM Institute

• Cross-River state


231

• Road safety

• Passport Office

• Out-Patients Department

• Police Communication

Success Stories

The successes recorded are pronounced in the pilots established

ab initio to demonstrate the practicability of service delivery to the

people. Specific achievements are therefore listed under each pilot.

General Out-Patient Department, Federal Medical Centre, Keffi

• Reduction of waiting time from 3hrs to 30mins

• Attitudinal change of staff to be customer- centric

• Display of Charter

• Elimination of hidden cost

• Wearing of name tags

Road safety (OSCAR)

• Increased public awareness of motor insurance requirements and

compensation rights

• Reduction in uninsured driving through detection and enforcement

from over 91% to less than 20% in Abuja

• Increased commitment to road safety

Passport Office

• Elimination of bottlenecks in the issuance of passport


232

• Transformation of the reception experience of passport seekers

Police Communication

• Improved crime reporting and effective response through modern

communication equipment

• Establishing user friendly service windows in some locations in

Abuja

Cross-River State

• Developing Charters for MDAs

• Improved complaints handling

• Customer sensitization

• Developing SIPs

SERVICOM Institute

• Enhanced the capacity of over 3000 public servants to drive the

Service Delivery Initiative in their MDAs

• Assisted MDAs to develop their SIPs

• Assisted some MDAs to develop their Complaints Policy and

Procedures

Key Challenges

Of course, there are challenges. Eniaiyejuni (2009) identifies a number

of key challenges which include

Low Management support in many organisations

Ineffective Charters

Lack of monitoring of performance


233

Frequent transfer of MSU staff

Attitude of Nigerians generally

The way forward

The only way forward is to entrenching service culture in our

various organizations in particular and the nation in general. To achieve

that, the followings must be done.

• Service delivery policies and procedures must be put in place

• Employee roles and expectations must be clearly spelt out

• Service Charters must be published and made effective

• Training in all areas of service delivery is important to align the

behavior of employees with the service culture

• Delivery system must also be aligned

• Performance at all levels must be effectively monitored to ensure

compliance with service standard

• In all cases of good performance, reward must be given while poor

performance should attract sanctions

• For the foregoing to be implemented, there must be Management

support.

Conclusion

In conclusion, rebranding Nigeria implies service delivery. Public

servants must recognise that they have customers. They should also

note that ―Service is what they offer themselves for. And service is what

the people are entitled to expect from them‖. What service delivery and

SERVICOM are saying is that all public servants should do what they

are employed to do and being paid for.


234

References Aribisala, F. (2008). ―Managing Customer Service‖. A powerpoint presentation. Eniaiyejuni, B.O. (2009). ―Service delivery in Nigeria: The way forward‖. A lecture delivered on a Regular Programme at the Administrative Staff College of Nigeria (ASCON), Topo-Badagry. Famro, C. (2008). ―SERVICOM and the Nigerian Public Service‖. A lecture delivered on the Ministerial SERVICOM Unit Training held in Jos. Microsoft Encarta (2008). SERVICOM Office (2009). ―SERVICOM Story‖. Abuja: SERVICOM Office


235

BUDGETING IN GOVERNMENT LEARNING OBJECTIVES:


(i) Define budget in their own words

(ii) State the purpose of a budget

(iii) List at least three approaches to budgeting

(iv) State the requirements for a good budget preparation

(v) Mention some factors that affect both budget preparation and

implementation in Nigeria.

INTRODUCTION:

The attainment of the socio-economic objectives of any

nation depends to a large extent on how well its finances are

managed. Cases abound where good policies and programmes

were formulated, but because of poor deployment of funds and

lack of accountability, such programmes never materialized. This

explains why most government efforts at revamping the economy

focus more on entrenching a sound financial management system.

Thus, the public sector Reforms Programme of government

touches significantly on sound financial management and

accountability. Financial Management in the public sector


236

encompasses such major functions as Planning and Programming;

Budgeting; Budget Execution and Accounting as well as Audit and

Review.

Although budgeting is a subset of financial management, its

importance is such that most economic activities tend to be

influenced by the performance of each year‘s budget.

Unfortunately, our score card on budget formulation,

implementation and evaluation has not been very impressive. It is

either the formulation is faulty or the implementation is not

effectively monitored. This certainly, would lead to a situation,

where the objectives of the budget would not be achieved,

consequently the attainment of laudable economic objectives of

government continues to be a mirage.

In view of the importance of good budgeting practice to

economic management as articulated above, this paper intends to

discuss the definition and purpose of budget; approaches to

budgeting; the budgeting process and calendar of government;

and factors affecting both budget preparation and implementation

in Nigeria.


237

DEFINITION OF BUDGET

Budget can be defined as follows:

(i) A statement of intention regarding activities to be

undertaken, the resources to be committed to those activities

and benefits or results expected to be achieved over a given

period of time, usually one fiscal year (Ariyo, 1997);

(ii) An estimate of income and expenditure covering a specified

period of time with some pre-determined objectives. (Collins

Business Dictionary).

(iii) A financial plan for a period (usually one year) which

explains how a government intends to mobilize and allocate

the anticipated resources that would accrue to it during the

period. Essentially, the budget document spells out the

anticipated revenue and expenditure of the government for

the fiscal year (Ajiboye, 2004).

PURPOSE OF BUDGET

Principally, budget is intended to serve as:

(i) a forecast of what expenditure will be necessary or desirable;

(ii) a plan to secure the right relationship between income and

expenditure;


238

(iii) a means of controlling expenditure in particular and other

activities of government in general.

The purpose of a budget is further captured by Oshisami

(1992) as uses of a budget, some of which are presented below:

(i) An aid to making and coordinating short-range plans;

(ii) a device for communicating these plans to various

responsibility centres;

(iii) a way to motivating managers to achieve goals

(iv) a benchmark for controlling on-going activities;

(v) a basis of evaluating performance.

TYPES OF BUDGET

The following are common types of budget in government.

(i) Revenue Budget

(ii) Recurrent Budget

(iii) Capital Budget

(iv) Surplus Budget

(v) Balanced Budget

(vi) Deficit Budget

(vii) Annual Budget

(viii) Supplementary Budget


239

(ix) Cash Budget

(x) Materials Budget, etc.

ISSUES OF FOCUS IN THE PREPARATION OF ANNUAL

BUDGET

In Nigeria, the public sector budget is composed of the

following:

A review of performance of previous year=s budget and

highlights of the policy focus of government in the current

year

Revenue Estimates

Expenditure Estimates

A set of policy measures such as fiscal and monetary

policies aimed at achieving the various objectives of

government and at directing the economy to the desired

state.

REVENUE ESTIMATES

These are based mainly on forecasts and previous

performance of various sources of revenue available to

government. There are two major categories of revenue

estimates: Current revenue and Capital receipts.


240

Current revenue includes tax and non-tax incomes earned by

government during a given fiscal year. In Nigeria current

revenue of government is classified into oil revenue and non

oil due to the significant contribution of crude oil to

government revenue.

Capital receipts include income realised from loans, aid and

grants as well as sale of government property.

Expenditure Estimates

These are also classified into two broad groups recurrent

and capital expenditures. Each class is further subdivided

according to a function or sector such as Administration, Economic

Services; Social and Community Services; and Transfer.

Administration: General administration, Defence and Internal

security

Economic Services: Agriculture; Construction, Transport and

Communication, among others.

Social & Community Services: Education, health, housing and

others.

Transfer: Public debt charges, grants and subventions


241

A functional category is normally the Head or an aggregation of

similar Heads of expenditures.

The Recurrent Expenditure: These include:

Specially classified recurrent expenditures that must be met

before any other charges such as interest payments on loans,

pensions and gratuities, as well as provisions for certain

statutory offices;

Personnel emoluments which include salaries and wages of

public officials; and

Overhead costs and servicing of debts.

APPROACHES TO BUDGETING (BUDGETING SYSTEMS)

The orientation of government budgeting has evolved in

three phases, namely: Control, Management and Planning. These

have influenced the introduction of a number of budgetary

techniques such as:

(i) Traditional or line--item budgeting system

(ii) Planning Programming budgeting system

(iii) Zero-base budgeting

(iv) Performance Budget System

(v) Medium Term Expenditure Framework (MTEF)


242

Line Item Budgeting:

The traditional or line item budgeting is control oriented, and

hence lays emphasis on an efficient system of accountability for

resource input to achieve a given goal. The main aims of the

technique are to keep expenditure in check and prevent improper

use of public money.

Some of the characteristics of the line item budgeting system

are listed below:

(i) It does not define the objectives of the organisation and its

programme of activities.

(ii) It emphasises organisational units and their objects of

expenditure.

(iii) It lacks criteria for measuring performance against inputs,

objectives and targets of the organisation.

(iv) It emphasises the principles of control but does not help

much in establishing the objectives of efficiency and

effectives.

Planning Programming Budgeting System (PPBS)

In Nigeria, PPBS was first introduced and operated in the old

Western Region from 1972 and was formally adopted by the


243

Federal Government as the instrument for the Country‘s Financial

Management in 1981.

The PPBS aims at defining the objectives of the functional

areas of government and their programme of activities for which

criteria will be established for measuring performance against

inputs, objectives, and set targets. The system strengthens the

linkages between planning, programming, budgeting and

performance evaluation through feed back. Some of the

characteristics of PPBS are listed below:

(i) The setting of specific objectives.

(ii) The systematic analysis to clarify objectives and to assess

alternative ways of meeting them.

(iii) The framing of budgeting proposals in terms of

programme(s) directed toward the achievement of the

objective.

(iv) The formulation of plan for year by year achievement of

each programme.


244

Zero - Based Budgeting (ZBB)

Although the PPBS appears to be the best example of the

planning oriented budget, the zero-base budgeting is another

approach for achieving the same goal.

The ZBB is a management tool which complements and links

existing planning, budgeting and review processes wherein all

programmes both new and old, rank and compete to achieve the

proper allocation of limited resources to the most deserving

programmes. Some of its characteristics are as follows:

(i) Low priority programmes are eliminated or reduced.

(ii) Programme effectiveness is dramatically improved.

(iii) High impact programmes can obtain increased funding by

shifting resources within the agency.

Performance Budgeting System

It is a budgeting system which focuses mainly on the

workload and unit cost of activities of organisations. Simply put, it

relates costs to the volume of work required to achieve defined

objectives and targets of the organisations or departments. It is

very similar to a line-budget with or performance statistics.

PERFORMANCE IMPROVEMENT TRAINING FOR FEDERAL CIVIL SERVANTS ON GL. 08 – 10.

245

Performance budgeting system is not system oriented and

therefore it is subjective in nature. For example, detailed programme

needs are not identified before costs are allocated to achieve an

assignment or objective.

Medium Term Expenditure Framework (MTEF)

Although the different budgeting approaches discussed above

achieved some level of success, the modern demands of economic

management which focuses on transparency and greater

predictability of government policy direction and resources called for

a paradigm shift in the budgeting approach. Thus in 2004, the

Federal Executive Council approved a major fiscal strategy for the

country budgeting system shifting from one year budgetary

framework to three years. The proposal tagged MTEF took effect

from 2005 Budget.

MTEF is an integrated top-down and bottom-up system of

public expenditure management designed to achieve macro-

economic stability without compromising economic development. It

directs that bulk of public spending to the nation‘s strategic priorities

as articulated in National Economic Empowerment and Development

Strategy (NEEDS) and for the attainment of the Millenium


246

Development goals (MDGs). MTEF assures the predictability of

funding as it goes beyond the current year‘s budget. It is a

framework of budgeting which provides spending estimates for the

next three years and gives rationale for decision in terms of macro-

economic context and assumptions.

MTEF is a three stage process, comprising a Medium Term

Fiscal Framework (MTFF) which documents fiscal policy objectives

plus fiscal targets and projections of available resources. Secondly, a

Medium Term Budget Framework (MTBF) designed to document

Medium term budget based on the nations strategic priorities in a

manner consistent with overall fiscal objectives and Medium term

Sector Strategy (MTSS), which involves getting the spending

agencies to articulate their medium Term goals and objectives in line

with the economic objectives of government as captured in NEEDs,

MDGs, 7-Point Agenda and Vision 20:2020 documents. Lastly, there

is the Medium Term Budget Framework Statement (MTBFS) which

summarises the assumptions and predictions under-pricing the

government fiscal policy. It also provides the key parameters the

government is basing its three year estimates upon.


247

Nigeria is not the only country in Africa that has introduced a

budget of three year regime, Malawi and Ghana have all introduced

MTEF based budget due to its appeal of looking beyond one fiscal

year.

It must, however be mentioned here that the MTEF based

budget goes along with budget envelop system where a ceiling of

expenditure is given to each organisation to guide them in their

expenditure estimates proposal.

CHARACTERISTICS OF A GOOD BUDGET

It must be goal oriented.

The goals and objectives of each Ministry and Agency must be

clearly stated and identified with the goals set by the government.

There should be a means of evaluating the objectives,

achievement and methods adopted in achieving them.

The Budget must be seen in the context of the national economy, so

that measures taken can increase the welfare of citizens in general.

The Budget must be cost-effective.

The Budget must stimulate the economy so as to prevent

unemployment.

REQUIREMENTS FOR A GOOD BUDGET PREPARATION


248

The following are some of the requirements for a good budget

preparation.

(i) Clear identification of all the activities to be carried out within

the budget period.

(ii) Accurate estimate of the resources required to carry out the

activities identified.

(iii) Accurate estimate of the revenue expected within the budget

period.

(iv) Allocation of funds amongst competing departments, and

activities along pre-determined priorities.

(v) Formulation of appropriate policies to guide and support the

implementation of the budget.

THE BUDGETING PROCESS AND CALENDAR OF GOVERNMENT

The budgeting process and calendar of government as

articulated by Oshisami and Dean (1985) are presented below:

1. The President decides upon broad budget strategy on the basis of his

own policies and a view of the macroeconomic environment. He

provides the Budget Office with a plan of action for implementing the

strategy.


249

2. The Budget Office devises a more detailed version of the plan and

issues a call circular to Ministries requesting estimates to be prepared

according to budget guidelines.

3. The Ministries submit their estimates to the Budget Office which

reviews them and adjusts them where necessary.

4. The Budget Office aggregates the budgets in the form of a

Consolidated Estimate of Revenue and Expenditure (CERE) which is

passed to the President for his approval.

5. The President lays the CERE before the National Assembly in the

form of an Appropriation Bill.

6. The Houses of the National Assembly debate the bill and invite

Ministries and other Agencies to defend their budget proposals where

necessary, modifications are made before passing the budget, and

returning it to the President for his approval.

7. The President gives his assent to the Appropriation bill which

becomes an Act.

8. The Minister of Finance is now empowered to issue funds to the

Ministries. This is done by the issue of warrants.


250

The Budget Calendar of Government

No.

Activities

Timing

1.

Issuance of Call Circular

July/August

2.

Preparation of Estimates

August - October

3.

Letter of Reminder

September

4.

Submission of Proposals/Estimates

September/October

5.

Consideration of Proposals by the Approving Authority

November - December

6.

Issuance of Provisional Warrant

January

7.

Issuance of General Warrant (Authorisation)

February/March

8..

Implementation of the Budget

January - December

9.

Review and Audit

After Implementation

FACTORS AFFECTING BUDGET PREPARATION AND IMPLEMENTATION IN NIGERIA

The consensus among economic analysts is that the following

factors affect both the budget preparation and implementation in

Nigeria.

A. Preparation

Lack of accurate data

Late issuance of call circular

Lack of materials


251

Lack of trained personnel

Lack of proper review of previous year=s budget

Lack of incentives to Budget Officers

Poor coordination

Political influence in the area of project selection.

B. Implementation

Lateness in the release of General Warrant

Political differences between The President and the National

Assembly leading to late approval.

Lack of proper monitoring mechanisms

Late/Irregular releases of funds

Partial releases of funds leading to insufficient funds for

projects

Lack of political will

Lack of correlation between monitoring reports and fund

disbursement.

CONCLUSION

Budget is an important economic management tool. In fact the

success or failure of any economy is strongly tied to the manner its

yearly budget is managed. In view of the fact that budget influences


252

all economic activities and affect directly or indirectly every individual

in the country, every public servant should infact take interest in

understanding the nitty-gritty of budgeting. This is with a view to

discovering area(s) he/she can contribute to the effective

management of the budget, especially in the area of implementation

and monitoring.

REFERENCES

1. Ajiboye, L. (2004), A Guide to Public Sector Budgeting, Abuja, Aflon Books. 2. Ariyo, A. (1997), ―Nigeria‘s Budget 1997: an Overview‖.

NCEMA Policy Analysis Series Vol. 3 No. 1 3. Jones, R. and Pendlebury, M. (1988), Public Sector Accounting;

London, Pitman Publishing. 4. Mckenna, B. and Fleming, A. M. (1975), Business Dictionary,

London, Collins Gem.

5. Olajide Bukky, (2009), Medium Term Expenditure Framework: Other Countries‘ Experiences in The Guardian Newspaper of

8th July. 6. Oshisami, K. (1992), Government Accounting and Financial Control,

Ibadan, Spectrums Book Limited 7. http://www.budget office gov.ng

http://www.budget/


253

GUIDELINES ON PROCUREMENT

IN THE PUBLIC SERVICE

SESSIONAL OBJECTIVES

The session of this discussion shall guarantee that participants are

able to:

- define public procurement

- Identify the economic role of procurement

- describe how efficient procurement can guarantee fairness.

- explain how efficient procurement can ensure competition,

transparency and accountability and value for money.

- state the spending thresholds for Permanent Secretary,

Director-General and Chief Executives of Government Agency.

- list the step-by-step required for good procurement to fit into the

due process principles.

2. INTRODUCTION

The clamour for good governance in every society around the

world is hinged on the fact that good governance ensures fair play,

guarantees human right, judicious use of scarce resources,

transparency and accountability and maintenance of sustainable

economy where life is in abundance.


254

In this connection, sound public procurement has been

identified as one of the virile ingredients with which the strive for good

governance can be achieved. Through sound procurement policies,

costs are reduced, waste minimized, projects results are timely, and

protests over corruption and government inefficiency are minimized.

3. DEFINITION OF CONCEPT

―Procurement‖ means acquisition of needs whether goods,

works or services. Procurement and purchasing are often

interchangeably used as terms describing the process of acquiring, or

leasing what is required for operations or services.

Public procurement is the ways and means by which an inter-

link is created between a buyer and a seller, using public financial

resource to provide goods and services for the benefit of the public.

Public procurement is the process established by law, through which

there are guidance as regards the acquisition of the right quality

goods, in the right quantity, from the right source, at the right time and

price.

Unlike ‗purchasing‘ public procurement is regimented to such

an extent that procurement does not take place except based on

appropriation or subvention. The purpose is often well spelt out, and


255

cannot be varied. In purchasing, the buyer is at liberty to use his

discretion to ensure he gets the best for his organization following

systematic procedure and employing scientific approach that will

engender profit and cost savings.

4. ECONOMIC ROLE OF PROCUREMENT

Procurement as an acquisition activity is intended to provide

value for money by ensuring that what is procured fulfils the

procurement purpose whether goods, works, services or consultancy

services.

It means more than negotiating for the least price. It always

must be the least responsive price which gives value for money not

only in terms of quality but also in terms of quantity and timeliness. It

must be noted, that an item particularly equipment can be purchased

at a very low price initially and later costs more to maintain. The

basic objective of economic purchase is to ensure that maximum

value is obtained for money spent in the long run.

5. EFFICIENCY

Efficiency implies practicality in terms of compatibility with

purpose. The amount expended should be at tune with the result

obtained. Items of works, goods and services must be obtained with


256

obvious gains, timely, and from sources free from encumbrances.

Efficiency in public procurement also implies competence and

professionalism on the part of the Procurement Officer such that his

processes and procedures are well documented and can be

defended in case of enquiry.

6. FAIRNESS IN PUBLIC PROCUREMENT

A good public procurement must exhibit impartiality,

consistence and reliability. It must be capable of producing positive

result with little or no delay in attending to suppliers/contractors.

A good public procurement is regarded as fair when in drafting

its Bills of Quantities it does not take care only the interest of its

organization but also the interest of Suppliers/Contractors either in

terms of stringent unattainable specification, pricing, or delivery

conditions.

It is fair where the specification is detailed and not ambiguous

and where Contractors and Suppliers are well and objectively guided.

It is fair where failed Contractors/Suppliers are made to know the

causes of their failure to enable them make amend and brace up for

the future.


257

7. TRANSPARENCY, COMPETITION, AND ACCOUNTABILITY IN PUBLIC PROCUREMENT

A good and internationally recognized public procurement

system must combine all the attributes of transparency, competition,

and accountability. These are the hallmark of good public

procurement which inspire the confidence and willingness of

Suppliers/Contractors to develop interest in dealing with public

organizations.

Transparency in procurement means making contractors

accessible to all details about a contract. The rules of the game are

known and clear to them, the procedures are well understood and

these elements are not just as advocated but seen to be so by the

stakeholders. Competition in public procurement is sine-qua-non.

The space must be made wide open enough for every interested

party to show-case his capability and not luck.

Qualified Contractors must be given the opportunity to display

their competence by exposing procurement information to them.

They must see it, not just hear about it.

The details must be as it is advertized. There must be a level

playing field and the goal post must not be shifted in favour of

anyone.


258

Accountability is simply the rendering of stewardship for

resources entrusted in the hands of public officers. However,

accountability is hard to achieve under a regime or in a situation

where ethical standard is lacking. A good public procurement should

be capable of holding its operators responsible for enforcing and

obeying the rules.

Operators of public procurement must be prepared to be

subjected to challenges and sanctions. Accountability in public

procurement remains a key deterrent to collusion and corruption and

an imperative for credibility in the procurement process.

Where public procurement practitioners fail to imbibe the

culture of fairness, competition and accountability, they encourage

public reluctance to compete and spur them into submitting inflated

tenders imbued with risks or the tendency to submit deflated tenders

which are often accompanied with delays, and defective

performance.

Other possibilities are collusion, bribery, or use of African magic

by unscrupulous contractors who are frustrated and yet hell-bent to

get the job. The consequences of all of these are bad value for


259

expected performance, betrayal and abuse of public trust for personal

gain.

Public procurement is a very sensitive and delicate assignment.

It is easier to describe in principle but very hard to actualize in

practice except for those who are professionals and sufficiently

disciplined with determination to maintain the practice code of

conduct.

8. GUIDELINES IN PUBLIC PROCUREMENT

In an attempt to meet the guideline process in public

procurement, the first requirement is to build the institutional

framework.

Part three section I5 of the Procurement Act states that ―all

entities which derive at least 35% of the fund appropriated or

proposed to be appropriated for any type of procurement from the

Federation share of Consolidated Revenue Fund are bound to obey

the Act‖.


260

The step by step as spelt out by the Act and enunciated by

government circulars are that:

i. There must be a Procurement Unit {Department} to be manned

by procurement Officer cadre with career progression up to the

level of Director.

ii. There must be a Procurement Planning Committee [PPC] made

up of:

- The Accounting Officer as the Chairman

- A representative of the Procurement Unit.

SPENDING LIMITS OR APPROVAL THRESHOLDS FOR THE BUREAU OF PUBLICPROCUREMENT [BPP] MINISTERIAL AND PARASTATAL TENDERS BOARDS ANDPERMANENT SECRETARIES/CHIEF EXECUTIVES OF PARASTATALS AND AGENCIES:

Approving Authority to award

Goods Works Non-Consultant Services

Consultant Services

BPP issues “No Objection” to award/FEC approves


N1.0 billion and above



Ministerial Tenders Board

Parastatal Tenders Board

Permanent Secretary

N50 million and above but lessthan N100 million

N2.50 million and above but less than N50million


N10 million and above but less than N1.0 billion

N5million and above but less than N250 million








Director-General/CEO






261

- A representative of the User.

- A representative of the Finance Unit.

- A representative of the Planning, Research and Statistics

Unit.

- A representative of the Legal Unit.

- A technical personnel in the area of the requirement.

iii. There must be a Tender Board comprising of the Accounting

Officer as the Chairman.

- All Heads of Departments in the organization.

- The Head of Procurement Unit serving as the Secretary.

iv. There must be a Technical Evaluation Committee to be headed

by the Head of the Procurement Unit. Other members should

be individuals with relevant technical background to assess and

evaluate Tenders.


262

CONCLUSION

The step-by-step process illustrated by the foregoing diagram is what

is called the ―due process‖.

These processes have minute details which have been explained in

the course of discussion and compliance with every detail is very

compulsory as spelt out by the procurement Act.

It should be noted that the least of the sanctions for contravention of

any aspects of the Act is five years imprisonment without an option of fine.

Procurement Planning Committee receives, collate,analyze and approves of items to be procured by issuinga Certificate of No Objection at Parastatal level.

Procurement Department synthesizes the approvedrequirements and advertized as the case may be.

Tenders/Bids or Quotations are received and closed atthe stipulated date.

Tenders Board opens the bids.

Bids are assessed and evaluated by the TechnicalEvaluation Committee [TEC].

TEC Recommendations are submitted to the TendersBoard.

Tenders Board Awards the contracts

Procurement department monitors the contractorsperformance and timely delivery.

The Steps are illustrated in the diagram below:


263

All procurement practitioners in government are therefore enjoined to

be very careful and be an observer of the Law.

REFERENCES

1. Adegbola M.F [2004]: Purchasing and Materials Management – An

Introductory Text, Badagry, Administrative Staff College of Nigeria

[ASCON].

2. Adegbola et al [2006]: The Problems of Effective Procurement and

Contract Management in the Nigerian Public Sector, Badagry,

Administrative Staff College of Nigeria [ASCON].

3. Bureau of Public Procurement [2006]: Procurement Procedures

Manual for Public Procurement in Nigeria, Abuja, Federal Republic of

Nigeria.

4. Federal Republic of Nigeria [2008]: Procurement Act 2007, Abuja,

Federal Ministry of Information.


264

THE CONCEPT OF VALUE FOR MONEY

LEARNING OBJECTIVES

At the end of the session, participants should be able to:

Define value for money.

Relate efficiency, effectiveness and economy to the usefulness of

value for money.

State the role of value for money in national development.

Explain the contributions of value for money to transparency,

accountability and fair dealings.

Draw the model of value for money and relate the concept to the role

of individual and organization to nation building.

State the role of competition in the pursuit of value for money.

INTRODUCTION

We live in a world where resources are scarce. As a result, we have

to strive to optimize output from available resources. In some cases, it is a

straight trade-off between output and the quality of output obtainable.

However, we can strive to maximize the quantity and quality of output at

the same time. This can be done by making efforts to utilize reduced input

which in combination with improved processes can achieve the same or

even higher output/result.


265

Hence, the alternative between trading off quantity with quality is to

strive to do more with little resources. This is because resources are finite,

we never can obtain all that we want and therefore, have to make choices.

If you buy a new car that you have been saving money for, you will not be

able to afford a summer holiday. If the company invests in a new assembly

line, it will not be able to build the much-needed housing estate for its

senior staff. If government builds the new highway, there will be no funds

for the ultra modern hospital.

We are faced with the problem of scarcity and choice on a daily basis

be it as individuals, industry or government.

In order to be able to make choices on the basis of what we can

afford, we need information on prices, quantity and quality of what we are

buying. A choice where we are happy about the price, quantity and quality

of the item purchased will give us satisfaction and value.

Value for money, therefore, is a requirement to maximize the use of

scarce resources. A successful commercial product will provide

satisfaction within the attributes of price, quantity and quality – value for

money – otherwise no one will buy it. A practical description of value for

money with respect to the public sector is given by P.C. Jones and J.G.

Bates in the book, Public Sector Auditing as follows:


266

Value for money is achieved when a public body carries out its duties

to high standard at low cost. This can be summarized colloquially by

saying that a good job is being done. Slightly more technically, value for

money is achieved when administration and service provision is

economical, efficient and effective

Just as a commercial product should provide satisfaction to be

successful, so public goods should be successful in meeting the real needs

they are designed for at reasonable cost.

DEFINITION OF CONCEPT

Value for money is an economic concept dealing with benefits and

satisfaction derivable from resources deployed in the course of

transactions. Value for money explains why and how people purchase

transactions on a regular basis with the aim of getting the best deal thereby

obtaining value for the sums expended. However, not many people give a

thought to value for money beyond the drive for ‗a good deal‘ on a

particular purchase.

Fewer people even know that the pursuit of value for money is a

collection of structured set of techniques applied in modern management to

reduce cost, improve processes and enhance productivity. An insight into

value for money becomes more interesting when it is realized that it is a


267

potent tool for instituting and enhancing transparency and accountability.

In this regard, value for money automatically becomes a forceful arrow in

the quest to combat corruption and fraud.

Elements of Value for Money

Value for money is generally accepted as covering three basic

elements: economy, efficiency and effectiveness. These are defined as

follows:

Economy: The practice of management with the virtues of thrift and good

housekeeping. An economic operation acquires resources in appropriate

quality and quantity at the lowest cost. Lack of economy could occur where

there is overstaffing or the acquisition and use of overpriced facilities.

Efficiency: This is making sure that there is maximum use of output from

the resources devoted to each activity, or, alternatively, that only the

minimum level of resources are devoted to achieving a given level of

output. An operation could be said to have increased in efficiency if either

lower costs were used to produce a given amount of output, or a given

level of cost resulted in increased output.

Inefficiency would be revealed by identifying the performance of work

with no useful purpose, or the accumulation of surplus materials that are

not needed to support operations.


268

Effectiveness – is ensuring that the output from any given activity or the

impact that services have on a community is achieving the desired results.

To evaluate effectiveness, we need to establish that the desired goals are

being achieved. A goal as an operating objective should be defined as a

concrete expression of a policy objective.

The three elements of value for money are interrelated and resonate

for better result. Economy and efficiency are similar as both relate to saving

resources. Economy ensures that input costs are minimized. Efficiency

ensures that maximum output is achieved with minimum level of input cost.

Efficiency, therefore, subsumes economy. An entity cannot be efficient and

uneconomical, but it can be both economic [cheap] and efficient.

Effectiveness means that a service provided properly meets the real need.

The three elements – economy, efficiency and effectiveness, have

been ranked in order of scope and ease of measurement. The view about

the interrelationship between the elements is shared by the Chartered

Institute of Public Finance and Accountant [CIPFA] in the United Kingdom

which emphasizes that the attainment of economy and efficiency is of little

practical use if effectiveness is disregarded.

Up till recently, there were three shining plants sited in Lagos State of

Nigeria that serve to buttress the point that economy and efficiency are of


269

small relevance if effectiveness is not attained. The three plants are

incinerators that were planned to anchor the Lagos State Waste Disposal

Programme in the late seventies. It was trumpeted that the incinerators

were state-of-the-art, latest technology facilities built in record time and well

under budget. The snag was that on commissioning the plants did not

work and still remain a testimony of the irrelevance of everything else

where effectiveness is not achieved.

The 3E Model

Economy

To establish economy of operation, management should establish

internal policies for the creation of standards. There are three aspects to

establishing economic services in terms of quantity, quality and cost.

• Quantity of materials required for an operation are set out using

optimum standards in the scope of works.

• Quality of materials are set out in technical specifications or

professional guidelines. Quality of staff may also be provided by

professional guidelines. Once quality of resources has been

established, management needs to ensure that they are obtained

at minimum or ‗acceptable‘ cost in relation to local conditions of

operation.


270

Quality and ‗acceptable‘ or minimum cost is best obtained by

competitive tendering where technical and economic parameters are

thoroughly evaluated against set standards and the best in the

circumstances selected. Economy as explained earlier, is simplified into

the ratio between planned input and actual ratio between planned input

and actual inputs in terms of unit costs.

Efficiency

Efficiency, which is making sure that the maximum useful output is

obtained from the resources devoted to an activity is relatively difficult to

verify. It is the ratio of actual inputs to actual outputs. The definition

[Efficiency][the ratio of actual inputs to actual outputs]

ACTUALINPUTS

ACTUAL OUTPUTS

[Economy][the ratio between planned inputs andactual inputs in terms of unit]

[Effectiveness][the ratio of actual outputs to planned outputs]

PLANNEDOUTPUTS[objectives, goals etc]

PLANNEDINPUTS

Fig. . The three Es of economy, efficiency and effectiveness


271

implies that output per unit of input can be measured. This may not be

easily quantifiable in practice.

The Canadian Audit Guide explained the importance of efficiency

measurements expressed in standards and performance data that are used

for different purposes in various information and control systems as follows:

• demonstrate achievement of results by comparing performance data

to standards, targets and goals;

• plan operations and budget resource requirement providing data for

comparing present and proposed procedures;

• provide a rational basis for pricing goods and services;

• make trade-off decisions between efficiency and the level of service;

and

• indicate to employees and supervisors what results are expected.

It can be seen from this analogy that standards are useful tools both

in appraising the performance of managers and groups of employees and

in motivating them.

The key elements that therefore, arise from management adopting

efficiency measures are:

i. an awareness of desired goals and the determination to accomplish

them in the most economical and efficient manner; a need to plan

operations as efficiently as possible for a given level of resources;

iii. the need for a structured organization whose administration should

follow prescribed work systems and procedures in order to avoid


272

duplication of effort, unnecessary tasks, idle time; and the provision of

work instructions in sufficient details to employees who are suitably

qualified and trained for the duties they are required to perform. The

measurement of efficiency is not an end in itself. The objective

should be to continuously improve efficiency. The development of

efficiency measures by management contributes to improving

efficiency. Specifying the expected gains from suggested

improvements will further assist the improvement of the process.

Management should be encouraged to monitor efficiency on a regular

basis rather than as an ad hoc exercise.

There is need for research to be carried out particularly in the public

sector to establish a range of comparative statistics for government

departments, local governments etc. to assist in the creation of standards

for the measurement of efficiency of similar activities.

Effectiveness

Whatever the level of resources applied to an activity, management

should primarily be concerned with the results obtained and continuously

ask the question – how effective is the activity?

On the other hand, despite all efforts put into a particular activity it

could still be ineffective.


273

For example a government adult education programme could be

efficiently administered but its effectiveness could be questionable if there

is no appreciable reduction in the community‘s adult illiteracy level after the

programme has run for some time.

The importance of effectiveness in value for money is underscored by

the fact that value is obtained when you get what you need at the least

cost.

However, the three key dimensions which all who pursue value for

money have to grapple within deciding:

• what is needed;

• how to measure in some ways whether it is being obtained; and

• whether the cost is right.

THE IMPERATIVES OF VALUE FOR MONEY

Value for money is important in our personal lives. It is also a vital

necessity of focus by profit and non-profit organizations. It is even more

important in the public sector because of the sheer size of expenditure and

its propensity to waste. In an era when we have to adjust to limits in

resources, we must strive to squeeze more out of every kobo of

expenditure.


274

Governments all over the world are facing serious challenges

occasioned by increasing demand for services and programmes due to

economic and social trends while at the same time the resources to meet

these needs are limited. In Third World countries, disposable resources

have been considerably curtailed by recession, declining government

revenue, the debt burden, high cost of borrowing etc. These problems are

further compounded by poor management of resources, corruption and

fraud.

The consequence of this is that amongst others:

• economic growth is stunted and standard of living continues to fall;

• movements in real incomes cannot be sustained without an

inflationary spiral being ignited;

• abundant natural resources and other endowments are not

efficiently and effectively harnessed; and

• national self-sufficiency and survival is threatened as there is over

dependence on imports.

CONCLUSION

There is no doubt that the establishment of systems and procedures

for achieving value for money will contribute tremendously to the attainment

of laudable goals.


275

In particular, value for money can be applied to set up a framework

for action and in the evaluation of questions like the following:

i. Is the organization getting what it is paying for?

ii. Are there more economical ways of meeting required service?

iii. Are there areas of waste that need to be eliminated?

iv. Is the organization managed well?

v. Are there performance measures to provide policy makers with

adequate and timely information to achieve value for money?

All these are questions which can readily be resolved through

practical commitment to the pursuit of value for money.

References

1. Afemikhe S.O [2003]: The Pursuit of Value for Money, Ibadan,

Spectrum Books Limited.

2. Donald J. Bowerson et al [2002]: Supply Chain, New York, McGraw-

Hill Irwin.

3. Irving Fisher[1977]: The Theory of Interest, New York, Porcupine

Press Inc.

4. John M. Ivancevich et al [2008]: Organizational Behaviour and

Management. USA, McGraw-Hill Irwin.


276

ELEMENTS OF MANAGEMENT

LEARNING OBJECTIVES

At the end of the discussion, participant should be able to:

(i) Define/explain what management is

(ii) Explain the management/administrative principles

(iii) Differentiate between the various basic functions of

management.

Every organization, irrespective of size and nature has objective(s)

for which reason it is established. To achieve the objective(s) certain type

of resources must be made available in the right quantity and quality.

These resources include: human resource, money materials, machine,

technology, time and information. The process that starts with the

acquisition at competitive cost and utilization of same in order to get the

end products called the output is what is known as management.

What makes significant difference between a successful organization

and a failed one is in the way they have been able to manage the

relationship between the inputs and the output. The two organizations may

have the same amount of resource at their disposal, yet may not have

the same output. If the two of them achieve their objectives, they are


277

said to be effective. Efficiency comes in when they are able to achieve

their objectives with minimal resources.

It is important to note that the environment, especially the external

environment, impacts seriously on organizations. The organization gets

inputs from the environment, processes them into end products and send

the end products back into the environment.

From the above explanation ―Management can then be formally

defined as ―the process of designing and maintaining an environment in

which individuals, working together in groups, efficiently accomplish

selected aims (Koontz and Weihrich (2000:4).

Management can also be defined as the process of achieving the

organisation‘s aims through the activities of planning, organizing, staffing,

directing and controlling (Orr(1998:111).

INPUT – OUTPUT MODEL

INPUTS OUTPUTSPROCESS

EXTERNAL

ENVIRONMENT


278

Management can be defined as a set of activities directed at the

efficient and effective utilization of resources in the pursuit of one or more

goals.

PRINCIPLES OF MANAGEMENT

Management scholars over a long while have come up with certain

related discernable activities they called functions of management or

functions that managers carry out. From Henri Fayol‘s fourteen principles

of administration, the practitioners have come to accept what are now

known as the basic functions of management. The fourteen principles are

as follows:

(i) Division of Work: Jobs are broken down to tasks that are then

manned by some individuals. Over a long while during which

individuals does the same small bit of the job, comes to master

his bit very well and improves the productivity.

(ii) Authority and Responsibility: Every office has certain

responsibilities that it should carry out and to do so, some level

of authority is required. The authority should be commensurate

with the responsibilities attached to the office.

(iii) Discipline: There are certain level of compliance to laid down

procedures, law and norms that are required for the smooth

performance of certain duties.

(iv) Unity of Command: Each subordinate office should take

directive from one superior office only.

(v) Unity of direction: All the efforts and energy of members of

the same organization are geared towards only one set of

objectives.

(vi) Subordination of Individual interest to


279

the general interest of the Organisation:

The interest of the organization is superior to the interest of any

one member. If the organization achieves its objectives, it will

not be too difficult for the individual to achieve his own.

(vii) Remuneration of Workers: When workers are paid for the

quality and quantity of effort put in, higher productivity is

encouraged as against and when a flat rate is paid out.

(viii) Centralization: For easy and effective coordination, the

activities and efforts of the various units of the organization will

have to be centralized. For example the units report to the

department while the departments report to the Chief Executive

Officer‘s Office.

(ix) Scalar Chain: Every organization has an administrative

structure which the organogram represent. Authority flows from

up downward; it does not from down upward.

(x) Order: In an organization where there is orderliness, there will

be harmony which leads to higher productivity.

(xi) Equity: Equals should be treated equally. Fairness and equity

encourage more loyalty and productivity.

(xii) Stability of Tenure of Workers: All things being equal, a

worker will have to put in 35 years into the service or he is 60

years of age before he can retire or be retired. He tends to be

happy and more productive if he can take the guaranteed

tenure for granted.


280

(xiii) Initiative: Employees are to be encouraged to do the same

thing differently. He should be allowed to introduce innovation

that does not run foul of the procedure.

(xiv) Esprit de Corps: Employees of the same organization should

be encouraged to develop team spirit and work together.

FUNCTIONS OF MANAGEMENT

From the above principles, seven functions of Management were

developed which was later collapsed to four. The seven functions of

management are commonly known by the acronym POSDCORB.

These initials stand for Planning, Organising, Staffing, Directing,

Coordinating, Reporting and Budgeting.

Planning:

The objectives, the mission and the vision of the organization are

thought out very clearly even before it is established. The actions to

achieve these activities are also mapped out. A plan is a blueprint used to

describe how an organization expects to achieve its objectives.

Organizing:

Organization has a formal structure that would allow it achieve its

objectives. For example, is the organization to be divided into departments

or sections where activities that are similar are grouped together or will it be

centrally administered where every member of staff are reporting directly to

the Chief Executive Officer?

Staffing:

The various positions or post laid out above will need to be filled in

order to accomplish the objectives of the organization. The staffing

functions include recruiting, selecting, placing, promoting, appraising,


281

planning the careers of, compensating and training the workers to

accomplish their tasks effectively and efficiently.

Directing:

On a continuous basis, decisions will be made in an organization in

order to develop the organization.

Coordinating:

The various departments, units, or branches of an organization must

all work in harmony in order to achieve its overall objectives.

Reporting:

Communication is of essence in any organization. Instructions and

directives are given and feed back expected.

Budgeting:

In any organization, resources are needed and utilized. The

management of finance is an important functions in any organization.


282

TIME MANAGEMENT AND TEAM BUILDING

TIME MANAGEMENT

Learning Objectives

At the end of the Session Participants will be able:

to define Time Management;

state the benefit of Time Management;

Identify Time Wasters and Time Savers;

rank Tasks in the order of importance; and

design and implement their own action programme on Time

Management.

Introduction

The greatest single problem today that people have is ‗Time Poverty‘.

There is so much to do but little time is available for personal lives.

Consequently, life has become a never-ending treadmill; managers fall into

the reactive/responsive mode of living and loss of all sense of control. To

be effective, one must master one‘s time rather than being slave to the

constant flow of events and demands of one‘s time. Time Management is

a core skill upon which everything depends. Many problems revolve round

time; not enough time, too much time, misuse of time and conflicts of time.

What is Time?

Certain cultures see and use time differently. In America time is

money, the past is history and the present a moment to be lived and

worked at to produce a better tomorrow –Lan Fleming. English or Anglo

Saxon cultures also emphasize efficiency, doing one thing at a time with an


283

agreed time scale. African and Middle Eastern cultures cherish the quality

of relationship more than arriving on time.

Meaning of Time

Generally, time is our perception of duration. Time is life and precious

gift from God. Life is simply a span of time that God has given to everyone

– a segment of moment carved out of eternity in which one is to live on the

earth and fulfills the plan and purposes of one‘s life. Time is a way of

measuring life.

Some Characteristics of Time

• Time is a gift and unknown quantity. We do not know the fullness of

time span allotted to us.

• Time is perishable.

• Time is the most equitable resource. Rulers and the ruled all have the

same number of hours per day.

• Time cannot be increased, decreased, delegated, saved, borrowed or

lent.

• We cannot capture hours that are lost and relieve them in a way that

is meaningful.

An Urgency About Time

We have so little a time. Consider the following;

Know where you are going

If you are you‘ve spent before age 65

20 yrs 7,300 days 16,425 days left


30 yrs 10, 950 days 12,775 days left


284

35 yrs 12,7775 day 10,950 days left






65 yrs 23,725 days

Are you spending them wisely? You decide.

Action Point

Take one hundred men at age of 25. Fate says that by age 65:

• 36 have died

• 54 are financially dependent

• 5 are still working

• 4 are financially independent for life

• 1 is rich

Know where you want to be (Source: Power to win by Staples (1994).

A study carried out recently showed that the average Nigerian public

servant who lives to be sixty would spend his life as follows:

20 years in sleeping 33.3%

5 years in eating 8.3%

6 years in traveling 10%

6 years in dressing and personal care 10%

2.5 years in worshiping and praying 4.2%

9 years in social amusement, TV watching

and partying . Etc 15.0%


285

11.5 years in working 19.2%

Learning Points

Rather than be discouraged about the brevity of life, you need to be

challenged to come to grips with time. You cannot extend your days but

you can determine to a great extent the quality and productivity of life. You

can determine your attitude towards time and make decisions related to

your use of it. The erratic dimension of time implies that you cannot fully

control time.

Concept of Time Management

Time cannot be managed; but you can manage yourself. Time

management is self management as we relate to our priorities. It requires

investment in thoughts, courage, self discipline and change. Time

management refers to a set of related common sense skills that help you to

use your time in the most effective and productive way possible. Time

management is the development of processes and tools that enhance an

organization's time efficiency. It involves the use of some techniques that

aimed at increasing the effectiveness of a person in getting results.

Issues Involved in Time Management

• What has to be done?

• How much of it has to be done?

• How fast does it have to be done?

• How much does it cost to do it?

Doing the right things in the best possible ways means we can use

our time to our best advantage. Time management is about effectiveness.


286

Why is Time Precious?

Time is short

The end time is uncertain

Time is a wasting asset. It is perishable.

All productive things require time

Good or bad life depends on the effective use of time

It is one of the few things money cannot buy.

It has no substitute.

Why is there Never Enough Time?

Failure to plan

Interruptions

Laziness

Worry

Forgetfulness

Don‘t want to do?

Benefits of Time Management

Time management provides a structure to one‘s life and in turn,

peace of mind. Specifically, Time management ensures:

• Better results;

• Improved quality of work;


287

• Faster work;

• Lower stress levels;

• Reduced number of crisis faced;

• Increased income;

• Improved satisfaction;

• Improved quality of our non-working life.

Reasons for Poor Time Management

Poor time management is caused by many factors which include:

• Ignorance; many people fail to see how intimately time is connected

with life and other aspects of what we do.

• Use of time seldom forms a part of measured part of appraisal.

• Love for pleasure; sound management techniques take effort and

application which are not always associated with pleasure.

• Overconfidence; common practice of managers to use techniques

which used to work in smaller projects to bigger ones.

• Peoples attitude towards time is also affected.

By the fact that time is free, one does not have to buy it. As

usual people do not put much value on things that cost ―nothing‖

The Four Categories of all Life‟s Activities

i. Urgent and important: relates to your core values and needs

immediate attention.

ii. Important but not urgent: no sense of immediacy.


288

iii. Urgent but not important: doesn‘t touch core values.

iv. Neither important nor urgent: all other things in life.

Time Worth Exercise

How much is your time worth?

1.5 x annual salary

No of working hours = Hourly Rate In a year.

Include in your salary, payroll taxes, the cost of office space

you occupy, equipment and facilities used, expenses/ Administrative

support e.t.c. To this figure, add a guesstimate of the amount of profit

you should generate by your activity.

The Value of One Minute

I have only one minute

Only sixty seconds in it.

Didn‘t seek it, didn‘t choose it

But it‘s up to me to use it.

I must suffer if I lose it.

Give account if I abuse it.

Just a tiny little minute.

But eternity is in it.

Time Wasters

Meaning: Waste of time can be defined as anything that does

not contribute to the attainment of life, personal, career and personal

development goals.

Do it yourself


289

Which of the following is a time waster and why? Recreation,

play or to be a workaholic.

• With a given list identify your own time wasters.

Rule

Nothing is a waste of time if it is a part of balanced plan for time

- Plan developed for the attainment of life goals and for maximum

usefulness, productivity and efficiency in the use of resources.

Time Management Tools

• Analysis of time usage.

-Log activities.

-Classified activities.

• Time budget (future).

• Allocate time to specific tasks.

• Plan a weekly time schedule.

Guidelines for Effective Time Management

• Personal time management begins with you. It begins with your

thinking through what is really important to you in life.

• Plan ahead.

• Schedule leisure activities. Under-promise and over-deliver.

• Break big jobs into manageable chunks.

• Keep track of your progress.

• Delegate whatever you can.


290

• Establish parameters for saying ‗NO‘.

• Make and follow a list of priorities.

• Group task according to skills required.

• Keep eyes open for short cuts.

• Watch.

When prioritizing and planning your time, consider the following

points:

KEY QUESTIONS

• What is the highest value-added I can do?

VALUES.

• Decide what is important to you and in what order.

CONSEQUENCES.

• Every action has consequences-good bad.

THE PARETO PRINCIPLE.

• 20% of what you do accounts for 80% of the value.

URGENCY VS IMPORTANCE.

• The urgent is other oriented, while important things are self directed.

THE LIMITING STEP.

• Every action has consequences- good or bad.

WRITTEN PLAN.


291

• List of goals, task and objectives are of no help unless they are

written.

VISUALIZATION.

• See yourself doing what you need to get done.

Recap

• You cannot separate success from wise use of time.

• You have to adapt time management techniques to fit your

personality and your life.

• To manage your time better, you‘ve got to start to manage yourself.

• Most of what constitutes the time management technique is common

sense though not always common practice.

• Take action which move theory from the niceties of the page to the

needs of the people.

• Three interrelated factors direct our lives, they are thoughts, actions

and surroundings.

• The final responsibility rests with internal dynamics. It is how we

process information into thoughts that determines action.

• Knowledge precede thought.

Conclusion

To say that time is money is an insult to the power of time. Effective

leaders lord over time, they make minutes and seconds their slaves in

order to accomplish their purpose. STAN TOLER (2002).


292

TEAM BUILDING

Learning Objectives


i. Define team

ii. Distinguish between a Team and a Group

iii. State the benefits of teams to individuals and organisation

iv. Identify the roles of team members

v. Explore the basic elements that make up a successful team and how

to build on them.

Introduction

Management is getting results through other people‘s performance.

Thus, human performance is a collection of capabilities of the organization

and people to deliver measurable results. It is not the individual but the

team that is the instrument of sustained and enduring success in

management. Effective team work is key to the success of all types of

organizations. The team approach for organizing work depends on

empowerment, trust and how well teammates have developed an

understanding of each other‘s strength and weaknesses. Therefore team

is required for greater organizational effectiveness.

Key Concepts

A group is a collection of individuals each with their own

thoughts ideas, abilities and objectives, the sort of gathering that you

might encounter on a social occasion or a bus stop.


293

A team is also a collection of individuals, each with their own

thoughts, ideas, and abilities but with a common objective and their

willingness to share their abilities to help their colleagues to achieve

set objectives.

A team is a relatively small number of people with

complementary skills who are committed to a common

purpose, performance goals and approach for which they hold

themselves mutually accountable.

Team work is the process of people actively working together to

accomplish common goals.

Team building is any planned event with a relationships and/or

goals which are designed to improve the way in which work gets

done by them in some way or the other.

Differences between Group and Team

GROUP TEAM

1. People work together

2. Information is given sparingly

3. Feelings are suppressed

4. Conflict is accepted

5. Trust is guided

6. People work for themselves

7. Objectives may be unclear

8. Failure is often blamed on

others

9. Goals may be personal

1. People work for each other

2. Information is shared openly

3. Feelings are expressed

4. Conflict is worked through

5. Trust is shared

6. People help each other

7. Objectives are always clear

8. Success and failure are

shared

9. Goals are common to all


294

10. Leadership may not be

personal

10. Good leadership

prevails

Benefits Derived from Team Work as Individuals

• Greater involvement and empowerment.

• The chance to play a real part in decision-making and

implementation.

• Enhanced motivation and greater job satisfaction.

• More interesting work.

• The social and emotional benefits.

How Teams Help Organization

Increasing resources for problems solving

� Fostering creativity and innovation

Improving quality of decision making

Enhancing members commitment to tasks

Raising motivation through collective action

Helping control and discipline members

Satisfying individual needs as organsations grow in size.

Teams are needed when:

You are experiencing rapid changes

You are dealing with a problem that is uncertain


295

There is uncertainty about task and need to share the problems with

others.

There is a real need for people to work closely together.

Team Formation

know the team

know why forming a team

know who you are adding

know how the team will be evaluated

know where the team fits within the structure

or the organisation

Factors to Consider when Building a Team

• Goals and objectives

• The right sort of leadership

• Complementary skills and roles in the team

• An atmosphere of honesty and openness

• Communication

• Working methods that flourish in this atmosphere

• Taking stock of how well individuals and teams are doing

How Individuals Play in the Team

Each member of a team will have two roles.

The technical/specialist role i.e. what people do as a specialist


296

The team role: How team members operate to add value to the team.

Action Point

If you had the chance to appoint someone as your assistant, would

you choose someone exactly like you or someone different? Why?

Team Effectiveness

An effective team is one that achieves and maintains high levels of

task, performance and human resources maintenance.

Human Resources Maintenance is the team‘s ability to maintain its

social fabric so that members will work well together.

Stages of Team Development

• Forming: A stage of initial orientation and interpersonal testing

• Storming: A stage of conflict over tasks and ways of operating as a

team.

• Norming: A stage of consolidation around tasks and operating

agenda.

• Norming: A stage of consolidation around tasks and operating

agenda.

• Performing stage: A stage of team work and focused task

performance.

• Adjourning stage: A stage or task accomplishment and

eventual disengagement


297

Handling Negative Conflict in Work Teams

• Direct Approach: it involves the leader to confront the issue

head-on

• Bargaining: an excellent approach to adopt when both parties

have ideas with the solution yet cannot find common ground

• Enforcement of Team ruler

• Retreat

• However, no approach of resolving conflict will work without mutual

respect and willingness to disagree and resolve disagreements.

Factors that Influence Team Motivation

Purpose

Challenge

Comradeship

Responsibility

Growth

Leadership

Common Team Problems

Floundering

Overbearing participants

Reluctant participants

Unquestioned acceptance of opinions as facts

Rush to accomplishment


298

Feuding members

The 17 Indisputable Laws of Teamwork by J. Maxwell

1. THE LAW OF SIGNIFICANCE

One is too small to achieve greatness

2. THE LAW OF THE BIG PICTURE

The goal is more important than the role

3. THE LAW OF THE NICHE

All players have a place where they add value

4. THE LAW OF MOUNT EVEREST

As the challenges escalate, the need for teamwork elevates

5. THE LAW OF THE CHAIN

The strength of the team is impacted by its weakest links

6. THE LAW OF THE CATALYST

Winning teams have players who make things happen

7. THE LAW OF THE COMPASS

Vision gives team members direction and confidence

8. THE LAW OF BAD APPLE

Rotten attitudes ruin a team

9. THE LAW OF COUNTABILITY

Teammates must be able to count on each other when it counts

10. THE LAW OF THE PRICE TAG

The team fails to reach its potential when it fails to pay the price

11. THE LAW OF THE SCOREBOARD

The team can make adjustments when it knows where it stands


299

12. THE LAW OF THE BENCH

Great teams have great depth

13. THE LAW OF IDENTITY

Shared values define the team

14. THE LAW OF COMMUNICATION

Interaction fuels action

15. THE LAW OF THE EDGE

The Difference between two equally talented teams is leadership

16. THE LAW OF HIGH MORALE

When you are winning, nothing hurts

17.THE LAW OF DIVIDENDS

Investing in the team compounds over time.

Conclusion

T - Together

E – Everyone

A - Achieves

M – Much


300

PERFORMANCE MANAGEMENT: CONCEPT,

IMPERATIVES AND MEASUREMENT Learning Objectives

Performance Management Process

Objectives:

Define the concept performance management

Outline the principles of performance management

Identify elements of performance

Explore specific issues to concentrate on when managing

performance

Outline process to undertake in managing performance

Discuss factors required for effective performance management

Introduction Every organisation, whether serving private or public interest, has a

corporate mission or purpose. Since it is the attainment of this purpose that

guarantees its survival, growth and acceptability to its shareholders or

stakeholders, the organization is expected to move concertedly towards

realizing it. Towards this end each organization is structured into

departments, each of which makes contributions in its functional

specialization towards the attainment of the corporate objectives. The work

of each department or units is further segmented into skill areas or tasks

and entrusted to an official to discharge. The effective execution of that


301

responsibility is crucially important if that unit, and indeed the organization,

is to achieve its purpose.

2. It is for this reason that it has been argued that the quality of human

resources in an organization is frequently the most important factor that

determines whether or not the organization is going to be successful,

realise a satisfactory return on its investment and whether it will reach its

basic objective. This point is emphasized by Rensis Likert, in his Book-

The Human Organisation when he says:

―All activities of any enterprise are initiated and determined by the persons that make up that institution. Plants, offices, computers, automated equipment, and all else that a modern firm uses are unproductive expect for human effort and direction. Human beings design or order the equipment; they decide where and how to use computers; they modernise or fail to modernize the technology employed, they secure the capital needed and decide on the accounting and fiscal procedures to be used. Every aspect of firm‘s activities is determined by the competence motivation and general effectiveness of its human organization.‖

The Meaning and Scope of Performance

3. A truism in management is that no matter how efficient his equipment

and no matter how great his technical competence, a supervising officer

relies principally on other people to get things done for him. Therefore, two

of the prime tasks of any manager, whether operating in the public or

private sector, must always be (a) obtaining the highest possible

performance, from all those reporting to him, and (b) developing his

subordinates either for improved capability in their present jobs or for

greater responsibilities through promotion. For us to devise appropriate

performance-inducing strategies and to objectively assess the contributions


302

of an officer to the attainment of corporate objectives, we need an

adequate understanding of what constitutes ―performance‖.

4. Performance is a multidimensional phenomenon whose elements

include effectiveness, efficiency, economy, productivity, equality and

behaviour. Performance can thus be tangible or behavioural. We will

attempt a brief explanation of each of these sub-concepts.

(i) Effectiveness measures the extent to which an employee

achieves the output requirements of his position, with the

emphasis not so much on ―how‖ it is achieved but on ―what‖ is

to be achieved. An employee or organization is therefore

effective when the results attained are the same as those

initially intended. In determining effectiveness, actual

achievement has to be compared with target or planned

achievement during a given period. The concept therefore

measures the ratio of actual output or results to target output or

results, and the higher the ratio, the greater the degree of

effectiveness is presumed to be.

(ii) Economy refers to the actual cost of achieving a particular

output or result compared with the least possible cost of

achieving the same output or result, during a given period.

Results are met with economy when the appropriate quantity

and quality have been attained at the right price. It is measured

by ratio of actual possible cost. The least possible cost can be

identified by reference to inter-institutional, inter-sectoral or

international experience. The lower the ratio, the more

economical the activity or operation has been.


303

(iii) Efficiency is a measure of how well resources are being used to

produce output or results. It is a comparison of actual

achievement with the cost of that achievement during a given

period. The higher the ratio, the greater the degree of

efficiency is accepted to be.

(iv) Productivity is the actual achievement (or input) of a factor of

production (e.g., an employee, an amount of financial capital, a

given equipment, a piece of land; etc) during a given period

compared with the other co-operating factors remaining

constant. It is the ratio of the output of a factor of production in

one period to the output of that same factor in a previous

period. The higher the ratio, the higher the productivity.

(v) Quality refers to the desired characteristics of the achieved

output or result. These characteristics could relate to

timeliness, reliablility, accuracy, frequency, accessibility,

convenience, waiting time, response time, etc. If we use a

corporate example, an electricity corporation may produce all

the megawatts of power which government intends (i.e.,

effectiveness) but if the distribution to consumers is irregular

and spasmodic (i.e., quality in terms of reliability), then the

corporation‘s performance cannot be said to be altogether

satisfactory or acceptable.

(vi) Behavioural performance refers to the behavior of the

employee whose effectiveness, economy, efficiency and

productivity are being evaluated. As employee whose tangible

performance is rated high but who achieved such good results

through bad manners or unethical professional strategies,


304

insensitive handling of other employees and/or client,

misinformation, etc, cannot be said to have performed

altogether creditably. Such an employee may therefore have

breached the ethnological objectives of his organization and

detracted from the corporate goodwill amassed over time.

Infact, the behavioural aspects of his performance may be such

as to fully neutralize his tangible performance.

5. It will be seen from the foregoing explanation of the several aspects

of performance that it may not be an easy phenomenon to pin down. The

assessor of the performance therefore has to make up his mind about

which particular aspects he wants to emphasise or focus on. One thing

however, is clear: an individual or institution may be effective but may not

be efficient or economic, and vice versa. This is why it is definitely

preferable not to settle for just one aspect of performance; a composite

index is much more realistic.

6. Another pertinent observation from the foregoing is that a specific

time horizon is a sine-qua-non of any attempt to assess performance,

whatever the indicator of performance may be, effectiveness, efficiency,

etc. Without specifying the time period to which performance relates, it will

be impracticable to measure the phenomenon and all references to it will

be meaningless. The time frame is critical.

7. Finally, it will be observed from the foregoing that performance is a

measurable concept and should ideally be measured by attempting to

quantify achievement/result/output and cost input. Measurement should be

done both in financial terms as well as in physical terms in order to get a

full picture of the situation. The need for both financial and physical


305

measures is dictated by the fact that either by itself may give an erroneous

or incomplete picture. Where financial quantification is impracticable, the

focus should be on physical measures such as quantity, length, weight,

time, number, etc, achieved during the specified period. For example, one

of the measures of the output of the Personnel Management Department

could be the number of union issues resolved, size of personnel wages and

welfare services provided over a given period of time.

8. Managing Performance

It seems obvious from our discussions so far that if an officer is to

perform at anything like his full potential, he needs to know three things,

namely (a) what his job is, (b) what standard of achievement is expected of

his and (c) how he is getting on. Unless an officer has a clear

understanding of what he is trying to achieve (which may be different from

what in fact he spends most of his time doing), of what standards he is

expected to maintain, and how well he is measuring up to these

requirements, his performance will be significantly lower than it could be.

Performance Management is therefore a management tool designed to

improve the results-delivery capacity of the individual officer and the

organization as an entity. It is ―a systematic way of seeing how we are

doing; checking the mixture of resources asking how effective we are (1)

asking these questions assist in clarifying corporate purpose as well as

managerial responsibility for achieving and improving on the anticipated

results. Thus, performance management helps both the manager and his

organization to change, adjust and improve on their activities and results.

A number of activities can assist us in managing performance. These

include:


306

a) Target Setting: One of the most effective ways of stimulating

results attainment is target setting. Target or Goal Setting is a

process of improving performance by planned and output

directed activities which delineate specific signposts for the

goal-seeker within a given time horizon. It is a guide to action

and decisions by a job holder which help him to plan and to

realise what is to be done in a job within the framework of

available resources and time. It is therefore not unusual for

such measurement terms like ―how much‖, ―how well‖, ―when‖,

etc; to be used when goals are being set... They are used in

relation

(i) expected quantity of output or product

(ii) expected quality of output, service or product;

(iii) amount of resources to be used;

(iv) time span of output, service or product; and

(v) method or process to be used.

In other words, goals should be set in terms of quantity/volume,

quality, time, cost-benefit, efficiency, etc. It is in recognition of its potency

in inducing performance that the 1988 reforms made target setting an

obligatory management practice in the Civil Service. In this connection, the

reforms specified that ―in consultation with the Director-General and the

Directors of Departments in the Ministry shall aim at, even in routine

matters (repealed Decree 43 of 1988: A796, Sec.20). Before the reforms,

the practice was for supervising officers merely to draw up schedules of

duty or major areas of responsibility for their subordinate officers without

bordering to set targets round each of these key result areas. The results


307

therefore reminded us that in setting targets, it shall be noted that targets

are different from functions or job description (and that) targets shall be set

in terms of Time, Cost, Quantity and/or Quality‖, (repealed Decree 43 of

1988: A796, Section 21). In order to relate target to planned objectives,

that same section warns that ―in setting targets for civil servants, Chief

Executives shall first take into account the relevant government policies,

the development plan and annual budgets.‖ If we accept that target setting

is a veritable instrument for stimulating performance, the challenge for all of

us as Directors is (i) to ensure that working in concert with the relevant

Director (e.g., Director of Planning, Research and Statistics for Civil

Service) we establish performance standards or targets for every position

in our departments, and (ii) expose every officer in our department to the

techniques of target setting.

A very potent management technique for setting managerial targets is

management by Objectives (MBO). The technique was introduced by a

well known management expert. Peter Drucker in 1954 when he

advocated that:

―What the business enterprises need is a principle of management that will give full scope to individual strength and responsibility and at the same time give common direction of vision and effort, establish team work and harmonise the goals of the individual with the common wealth. The only principle that can do this is Management by Objectives and Self Control‖.(2)


308

PUBLIC POLICY MAKING PROCESS

1.0 Learning Objectives

At the end of the presentation, participants will be able to:

- explain the policy cycle;

- determine ways of deriving acceptable policies;

- monitor policy implementation; and

- determine why policies fail.

2.0 Introduction

Policy making is an activity which provides the necessary framework

for major decisions that lead to concrete action aimed at solving specific

problems or improving an existing situation. In the context of governance,

policy-making serves as the instrument for authoritative allocation of

resources and values to various sectors and activities towards achieving

specific socio-political and economic objectives of the Government.

Furthermore, this all important activity involves a systematic approach

which entails a thorough and sustained research, determination of a

particular direction and a clear focus on specific goals and objectives or

desirable outcomes.


309

3.0 The Policy Cycle

Policy-making involves the policy cycle which indicates the main

phases of this exercise which could be systematically undertaken. These

phases are: policy initiation, policy formulation, policy implementation,

policy monitoring and evaluation; and policy re-formation.

3.1 POLICY INITIATION

This involves intensive research effort on the nature and substance

and purpose of the policy. This phase is sometimes undertaken by a group

of multi-disciplinary experts or think-tank by generating relevant ideas and

providing facts and figures to appraise a proposed policy in terms of its

chances of success or otherwise. At the initiation stage, the degree of

public acceptability or reception, possible anticipated problems, costs and

benefits, enabling and inhibiting environmental factors and resource

availability are identified and thoroughly examined in order to facilitate

policy formulation and enhance the success of a policy. The desirability or

otherwise of a proposed policy should be determined at this stage before

any further action is undertaken.

3.2 Policy Formulation

This phase embraces features such as clear and unambiguous

definition, statement and articulation of the policy content indicating clearly


310

stated implementable policy objectives, plans, programmes, key activities

involved, policy priorities and strategies. Other important features of this

phase include resource availability, identification of relevant and core

agencies and their roles, and an enabling environment to facilitate policy

implementation.

Sound policy formulation should involve proper research and

systematic approach that will ensure the aggregation and articulation of

various interest groups of the society who may be affected by a policy in

one manner or the other. In order to ensure policy sustainability and

positive impact, short-term or immediate, medium and long-term interests

should be accommodated in policy formulation. A good example is the

national socio-economic development which covers such areas as health,

education, transportation, communication, agriculture, housing, industrial

and other sectors. Although the public servant plays a very active role in

policy formulation using his wealth of knowledge, professional competence

and experience in government business and the environment in which it

operates, the responsibility for formulating any policy rests squarely with

the politician or political decision-makers.


311

3.3 Policy Implementation

This phase is critical to the success of any policy since it constitutes

the epicenter of the policy process. This stage involves the identification of

policy plans, programmes, projects, activities, clear definition of distinct

roles of implementing organization or agencies, details of strategies and

necessary linkages and coordinating mechanisms, resources (human,

financial, material, technological, information), acquisition, allocation and

utilization.

Efficient and effective policy implementation would require inputs of

sound managerial and administrative capabilities in terms of proper activity

scheduling, resource mobilization and rationalization, network anlaysis,

budgeting, supervision, problem solving and decision making and cost-

benefit analysis. We should also determine at this stage, policy

performance standards and targets. Implementation of policies must be

guided by clearly stated policy objectives and in accordance with specified

guidelines, plans and time-frame in order to avoid the policy

implementation gap which is a common feature of even well formulated

public policies in Nigeria. This gap is the difference between well-stated

and articulated policy objectives as expected outcomes and the actual


312

outcome which is a consequence of inefficient or poor policy

implementation.

3.4 Policy Monitoring and Evaluation

The monitoring of policy performance should permeate all phases of

the policy cycle and especially all activities planned, programmed and

undertaken at various stages of policy implementation. This approach

allows for necessary corrections, modifications and adjustments to be

effected towards ensuring the success of a policy in terms of the

achievement of desirable results. Policy monitoring therefore focuses on

compliance with policy implementation specifications, resource

rationalization and adherence to activity planning and time schedule for all

aspects of a policy.

Policy Evaluation should provide clear indications for the successful

implementation of a policy on the basis of well-defined criteria of efficiency,

effectiveness, responsiveness, impact and innovation. This takes various

forms such as appraisal, ex-ante, and ex-post evaluation.

3.5 Policy-Reformulation

The information emerging from evaluation will dictate possible policy

reformulation. For instance, where a given policy fails to meet the objective

of its enunciation, this may call for the reformulation of that policy.


313

Public Policy Cycle

3.6 Linkages in the Policy Cycle

For the achievement of policy objectives to be optimized, there must

be meaningful and feasible linkages and symbolic relationship between all

phases of the policy cycle. In other words, policy initiation, policy

formulation, policy implementation, policy monitoring and evaluation, as

well as policy reformulation (if need be) must be inter-woven and made

mutually reinforcing by dove-tailing into each other. Thus, short-

sightedness, dissipation of effort, waste of scarce resources and inability to

create effective linkages between all activities for optimal policy

performance can be eliminated or minimized.

Policy Initiation

Reformulation

Monitoring and Evaluation Policy

Implementation

Policy Formulation


314

TOTAL QUALITY MANAGEMENT (T.Q.M.)

SESSION OBJECTIVES:

At the end of the discussion, participants should be able to:

Define the concept of Total Quality Management

List and describe Basic concepts of T.Q.M.

Discuss the levels and measurements of quality service

Apply T.Q.M. principles to service.

LEARNING POINTS:

(a) Definition of T.Q.M.

(b) Fathers of T.Q.M.

(c) Basic concepts of T.Q.M.

(d) Levels of quality

(e) Measurement of Service quality

(f) How to monitor quality progress

(g) Benefits of T.Q.M. to an organization

(h) Application of T.Q.M. principles to Service.

1. INTRODUCTION:

Total Quality Management, often regarded as ―T.Q.M.‖ is a form

of management geared towards producing and distributing goods and

services in such a manner as to provide maximum satisfaction to

consumers constantly. It is a customer-driven management.

The T.Q.M. philosophy requires participation of every one in the

organization in the development of shared mission, vision, plans and

in the quest for continuous improvement. Employees must, therefore,


315

become more management‘s partners in meeting the ultimate goal of

delighting the customers. Such partnerships will require concerted

efforts towards the acquisition of knowledge, skills and right attitudes

in meeting day – to – day problems and making fast but low risk

decisions.

DEFINITION OF TQM

Total Quality Management has no generally accepted definition.

There is even some disagreement about the principles, methods and

tools that ought to be associated with the term. However, for some

people it is more on objective than specific method of doing things.

For others, it is an attitude or philosophy of management. And yet for

others, it has become not only a way of viewing the world, but a new

way of living. However, the following definitions are relevant:

(a) It is the combination of people and systems working

harmoniously together for the ultimate benefit of the

customer.

(b) A management discipline concerned with preventing

problems from occurring by creating the attitude and controls

that make prevention possible.


316

(c) Building a philosophy of continuous improvement, efficiency,

productivity and long term success.

(d) All about GOOD MANAGEMENT.

(e) About achieving success through people.

2. FATHERS OF T.Q.M.:

The philosophy of improving quality in production was first

masted by the American manufacturers in the early 1930‘s. However

in the 1950‘s the desire to constantly improve on quality production

gave rise to some notable experts whose work expanded to Japan.

Among these are:

(a) Arm and V. Feigenbaum. He first coined the term ―Total

Quality Control‖ in 1954 after carrying out series of experiments

in Western Electric Company in Illinois, U.S.A.

(b) Other notable proponents of the philosophy from U.S.A.

and who made waves in Japan include:

(i) Dr. W. Edward Deming. He revolutionized quality

and productivity in the Japanese economy. He later

became an internationally renowned consultant in

T.Q.M.


317

(ii) Dr. Joseph M. Juran. Founder and Chairman

Emeritus of Juran Institute. He became a

consultant to various industrial companies and

government agencies.

(iii) Phil B. Croshby. An expert quality consultant and

was recognized as one of the leaders in Quality

Management. He was known for his best selling

book, ―Quality is free‖.

3. BASIC CONCEPTS OF T.Q.M.

a. Every one has customers.

b. Adopt a partnering philosophy with suppliers.

c. Everyone is responsible for quality.

d. Focus is on preventing problems, not fixing them.

e. Team Work.

f. Process fail, not people. (Note the view that ―85% of the

problems are caused by the system‖, and that only

management can correct system problems).

g. Top Management must lead.

h. Middle Management must support.

i. Focus on Processes and systems.

4. THE QUALITY ASSURANCE TRIANGLE (PROCESS)


318

(a) Quality Design: This is Planning process. The design

process defines the organizations‘ mission, including its clients

and services. It allocates resources and sets the standards for

service delivery.

(b) Quality Control: It consists of the monitoring, supervision and

evaluation that ensure every worker and every work unit meet

those standards and consistently deliver good quality services.

The importance of control in an organization is shown by

a shift from traditional management to that of Total Quality

Management. This is depicted by the Inverted Pyramid of

Control.

Quality Design

Quality Improvement

Quality Control


319

(d) Quality Improvement: Aims to increase quality and raise

standards by continually solving problems and improving processes.

5. LEVELS OF QUALITY:

There are basically three levels of quality:

a. Requirements - Those things that are basic in the

provision of goods and services.

b. Expectations - this level of quality, which if not

provided, can cause deep dissatisfaction.

c. Exciters - this level of quality excites because it is

unexpected. However, once experienced, an

exciting quality becomes expectation; and new

Customers Rank & File

Workers

Senior Manager

Level of Importance

Senior Manager

Customers

(I) (II)

Traditional Management Total Quality Management

Source: Morgan & Murgatroyd (1994: 262).

Rank & File Workers


320

challenges must be evolved in order to remain

exciters.

6. MEASURING SERVICE QUALITY:

All organization that are interested in delivering superior quality

must be prepared to develop their systems and standards for

measuring quality. This they can do through noting:

(a) Frequency of task: How often should it be done?

(b) Accuracy: Is it correct?

(c) Turn around: How long will it take to accomplish a task?

(d) Timing: Did you do it when I needed it?

7. MONITORING PROGRESS:

It is pertinent to regularly monitor the quality of service

rendered in order to ascertain that customers are consistently

satisfied with our services. However, more often, this area of activity

is not given the attention it deserves. The failure on the part of

managers to put in place an effective monitoring system, results in

failure to maintain standard performance.

Under the T.Q.M. philosophy, progress can be monitored through.

(a) Setting standards. Without setting standards, it might be

difficult to effectively monitor and evaluate quality service.

(b) Using the Quality Score Card.

(c) Using Critical indicators:

(d) Timeliness to work place.


321

(e) Timeliness in service delivery

(f) Promptness in addressing complaints.

(g) The monthly Review.

8. BENEFITS OF T.Q.M.

(a) Establishment of more scientific approach to problem

solving by asking:

(i) what is wrong?

(ii) how wrong is it?

(b) What can be done to rectify it?

(c) Improved attitude to Customers (internal and external).

(d) Greater Commitment to corporate goal.

(e) Fostering a collective interest in organizational goals and

dedication to implement them.

(f) More efficient use of resources.

(g) Improved service quality.

(h) Greater customer satisfaction and loyalty.

(i) Better corporate image and growing market share.


322

9. APPLYING GUIDING PRINCIPLES OF T.Q.M. TO SERVICE

Deming proposed 14 principles which can be adapted in

improving quality service:

(j) Create constancy of purpose towards improvement of product

and service.

(ii) Adopt the new philosophy.

(iii) Stop depending on mass inspection.

(iv) End the practice of awarding business on the basis of price tag

alone.

(v) Constantly improve the system of production and service.

(vi) Institute modern methods of training.

(vii) Institute Leadership.

(viii) Drive out fear so that everyone may work effectively for the

organization.

(ix) Breakdown barriers between staff areas.

(x) Eliminate arbitrary numerical goals, slogans and targets.

(xi) Eliminate work standards and numerical quotas.

(xii) Remove barriers that deprive job employees of their pride in

workmanship.

(xiii) Institute a vigorous programme of education and retraining.


323

(xiv) Take actions to accomplish the transformation.

10. CONCLUSION:

―There is no single right way to approach T.Q.M. Organizatyions

have different needs, priorities and problems. Culture and

management style also affect approaches to implementing T.Q.M.

What is most important is the degree of management

commitment‖.

SUGGESTED READING LIST

Bates. J. G. (1993), Managing Value for money in the Public Sector. London, Chapman/Hall.

Carpinettil L. C. R. et al ―human Resources and Total Quality Management

– Case Studies in Bragatian Companies‖ The T.Q.M. Magazine Vol, 10,No. 2, 1998, Pp. 109 – 114.

Cohen, Steven et al. ―Total Quality Management on the U.S. Environment

Protection Agency‖ Public Productivity and Management Review Vol., 14, No. 1, 1990, Pp. 99 – 114.

Dale, B. G. & Lascelles, D. M. ―Total Quality Management Adoption:

revisiting the levels‖ The TQM Magazine Vol. 9(6) 1997, Pp. 418 -428.

Sustaining Total Quality Management what are the key isues‖. T.Q.M. Magazine Vol. 9, No. 5 1997, Pp. 372 – 350.

Edosomwan, J. A. (1996): Organizational Transformation and Process re-

engineering, London, Kagan Page. (1988) productivity and quality improvement Bedford, I.Fs. Fadeyi, Bode. ―Total Quality and result – Oriented Management.

WAMDEVIN Newsletter Vol. 6, No. 1, June, 1998, Pp 6 – 8.


324

Feidnberg Samuel. ―Why managers appose T.Q.M.‖ The T.Q.M.

Magazine. Vol. 10, No. 1, 1998, Pp. 16- 19. Gatchalian, M. M. ―People empowerment: the Key to T.Q.M. success‖.

T.Q.M. Magazine, Vol. 9, No. 6,1997, Pp. 429 – 433. Lo, Wai-Kwok, ―Application of Demang‘s principles in the management of

change- a Hong Kong experience‖ The T.Q.M. Magazine Vol. 9, No. 5, 1997, Pp. 336 – 343.

Malaysia. The government of ―Strengthening the implementation of Total

Quality Management‖ in the Civil Service of Malaysia: Towards efficiency and effectiveness. Kuala Lumpur, 1995, Pp. 23 – 45.

Milakovich, M. E. ―Total Quality Management for public Sector Productivity

improvement.‖ Public Productivity and Management Review. Vol. 14, No. 1, 1990, Pp. 19 – 32.

Qakland, J. s. (1993). Total Quality Management: The route to improving

performance. Oxford, Buttersworths. Okolie, Eugene. ―Total Quality Management Implemntation in Nigerian

Companies‖ Lagos Business School Management Review‖. Vol. 1, No. 2, July – Dec.,1996, Pp. 93 – 99.


325

RECORDS MANAGEMENT

LEARNING OBJECTIVES

explain the purpose of records management

outline the theories and principles of records

outline the importance of managing records for government

accountability and the value of seeing records as a strategic resource

outline the key organisational and administrative issues necessary to

understanding and restructuring records management within

government

INTRODUCTION

This module, examines the importance of good record keeping,

particularly within the public sector, and discusses the need to manage

information as a strategic resource. It also presents a rationale for

developing an integrated records management programme. It discusses

the processes involved in restructuring existing information and records

systems and then outlines the key activities undertaken in records and

archives management.

The information presented can be used in government, corporate,

organisational or personal settings; the principles apply equally the agency

whether public or private.

Records care in terms of ‗best practice ‘is also discussed, offering

information and proposing actions that would result in the ‗ideal‘ information

management programme. However, it is recognised that the development

and implementation of new systems and procedures is a time-consuming

process and Records Managers should learn what actions could be taken.


326

As you read through, remember that it offers an introduction to an

overview of information described in more detail in other books. In order to

gain a clear overview of the steps involved in the ‗ideal‘ records

management programme, you are encouraged to read other texts and

consult other literature for more information on specific topics such as

managing current records, electronic records management, preservation

etc.

WHAT ARE RECORDS?

The term „records‟ includes all documents that institutions or

individuals create or receive in the course of administrative and executive

transactions. The records themselves form part of or provide evidence of

such transactions. As evidence, they are subsequently maintained by or

on behalf of those responsible for the transactions, who keep the records

for their own future use or for the use of their successors or others with

legitimate interest in the records. Although records may ultimately have

significant research value, they are not created in the interests of or for

the information of archivists or future researchers.

All of these items are records if they were created by individuals or

agencies in the course of their business or activities.

Nature of Records

While all records convey information, not all sources of information

are necessarily records. For example, a published book or an externally

provided database (on- or offline) will not be a record, although information

selected from it and reused in a new context may itself become a record.

Records arise from actual happenings; they are a ‗snapshot‘ of an action or

event. They offer a picture of something that happened. Records have

four important qualities or characteristics. They are static in form; they


327

have authority; they are unique; and they are authentic.

Records are Static

During the process of creating a record, a document will go through a

phase of development and change. For example, minutes of a meeting will

be produced in draft form and reviewed by the members of the committee

before being approved. Once this process of creation, or drafting, is

finished and the document is considered complete, it may be regarded as a

record. In order to provide evidence, the record must now be fixed and

must not be susceptible to change. If a record is changed or manipulated

in some way, it no longer provides evidence of the transaction it originally

documented. If someone alters the minutes of a meeting after they have

been approved, the minutes can no longer be considered an accurate

record of the meeting.

However, drafts themselves, such as the draft minutes, may be

considered ‗records‘, since they can be considered completed documents

at a certain stage of development; that is, as draft minutes.

Records have Authority

Records provide the ‗official‘ evidence of the activity or transaction

they document. Records must be reliable and trustworthy. The reliability of

a record is linked to its creation. Who generated or issued the record?

Under what authority? Can this authority be proved? Consider again the

case of the draft and final minutes. The committee has the authority to

confirm that the minutes represent accurately the events of the meeting. If

someone changed the minutes after the committee had approved them, he

or she perhaps did not have the authority; those revised minutes may be

evidence of that person‘s view of the meeting but they are not the ‗official‘

record of the meeting, as authorised by the committee.


328

Signatures, letterheads, seals and office stamps are obvious

indicators of the official nature of records. However, not all records have

official stamps or seals. The continuous safekeeping of records can also

protect their reliability. If the official version of the minutes is filed by the

records manager and thus protected from change, the unauthorised

version will not form part of the official record. The authority of the official

version will remain intact.

Records are Unique

Records are unique in the sense that, maintained in their appropriate

context, they are a component in a unique compilation or sequence of

transactions. Records are not isolated bits of information. They have

meaning because they were generated during a particular transaction or

business process. The records make sense within the context of the

overall functions and activities of the individual or organisation that created

or used them. They have a relationship with other records that make them

unique.

The minutes may not be ‗unique‘ in that there may be ten copies

made available to all members of the committee. But the minutes are

unique within the context of that organisation, because the official copy

represents one event – the meeting – that only took place with those

committee members on that day at that place.

Copies of a record may be unique within another context. For

example, if one member of the committee gives his copy of the minutes to

a colleague, with a cover note suggesting that the format used for minute-

taking may be of value to the colleague‘s organisation, those minutes

become a new record. They are part of a separate set of transactions

between that one member and his colleague. For this reason, the context


329

of the record (the activity and authority that gave rise to it) is vital and must

be preserved. Only by knowing how and why a record was created and

used can its contents be fully understood.

Records are Authentic

It must be possible to prove that records are what they say they are.

The authenticity of a record is derived from the record-keeping system in

which it was created or received, maintained and used. A record is

authentic if it can be verified that it is now exactly as it was when first

transmitted or set aside for retention. For example, a letter received in an

office may be date-stamped, registered and placed on a file. The file

containing the letter is tracked throughout its use and stored when not in

use in a records office.

Think again of the minutes. In order to prove that the ‗official‘ minutes

are in fact authentic, it is necessary to be able to show that they were

produced, approved and then filed appropriately in the organisation‘s

record-keeping system. Without this process for authenticating records,

the ‗unofficial‘ version produced by that one member after the fact could be

mistaken for the official record.

Records today may be produced in a range of systems and stored in

a range of media, including paper and electronic forms; different versions

may be stored in different media in different locations. One of the dangers

today, with the advent of sophisticated information technologies such as

computers, is that information can be extracted from the record that

originally conveyed it and taken out of its context.

An electronic version of the minutes can be altered and could replace

the original version without anyone noticing the difference. Similarly, new

versions of the minutes could be made using electronic technologies, just


330

as in the examples earlier, and as a result no copy can be guaranteed to be

authentic.

Consider another example. A government department may be

responsible for buildings and physical plant maintenance; as part of its

responsibilities, it might create architectural plans for a new building. It

might also take photographs of that building as it is built and it might create

minutes and reports of various stages of construction. Each type of

material is a record. The architectural drawings, photographs, and minutes

gain meaning as records by being retained as part of the entirety of records

relating to the construction of that particular building. The materials would

lose their meaning if they were removed from the whole body of records

relating to the work of that government department and kept as single

items, without information about their origins or context.

PUBLIC AND PRIVATE RECORDS

Records are created by all sorts of people and institutions.

Individuals, families, businesses, associations and groups, political parties

and governments all create and use records every day. Records created

by government agencies or other institutions within the public sector are

usually specifically designated as „public records‟; their management is —

or ought to be — governed by legislation, which determines how they are to

be managed throughout their life.

It is a primary responsibility of government to care for its own public

records, particularly when those records are needed for the administration

of government services. However, it is often the case that central archival

institutions, such as National Archives, Provincial or State Archives or

University Archives, acquire and preserve private records for use by

members of the public.


331

When acquiring privately created records, repositories may have to

consider issues of confidentiality or privacy. In general, whether the

repository cares only for its own government or corporate records or

acquires a broader range of materials, the agency must adhere to

principles of access and codes of ethics laid down in legislation or in

corporate or professional guidelines.

Records and Archives

Many records are kept by an organisation for only a short time, to

provide evidence or information for the creating agency. Other records

have a longer value, as evidence of or information about the actions or

functions of an agency over time. Those records worth preserving for their

enduring value are called „archives‟. Archives are normally preserved in

an archival institution.

Records can be identified as archival at the time of their creation,

indeed even before their creation, but they are usually not transferred to an

archival repository for permanent preservation until they have ceased to be

of immediate administrative use to the creating agency.

Who Uses Records?

Within both government and the private sector, records are created

and used on a daily basis to document actions, confirm decisions, identify

rights and responsibilities and communicate information. Without records,

governments and businesses today could not operate. It is no longer

possible to ‗remember‘ vast quantities of information without creating an

independent account: a record.

Governments use records for such wide-ranging purposes as

documenting the work of employees


332

confirming pensions, leave and health benefits

confirming or reviewing policies and procedures

confirming citizens‘ rights, such as benefits or land ownership

providing information about past actions or decisions.

On behalf of the citizens of a country, government employees rely on

records to provide core information for conducting their public business.

While many of those records do not need to be kept permanently, a small

but significant portion has enduring value. It is this portion of a

government‘s records that are preserved within public archival institutions.

Together with a country‘s National Library, National Museum and other

national institutions, the National Archives is one of the country‘s essential

research resources. Users come to it from all sectors. Other government

archival facilities, such as state or provincial archival institutions, or private-

sector archival facilities in businesses or associations, are equally

important research resources.

Equally, corporate, organisational or local archival institutions hold

records of research use to a wide variety of people.

PRINCIPLES OF RECORDS MANAGEMENT

Records should be well managed in order to ensure they are

protected for both administrative purposes and to serve as evidence of the

organisation‘s work. The process of caring for records is known as records

management.

The management of records and archives is governed by four

important concepts.. These are (1) that records must be kept together

according to the agency responsible for their creation or accumulation, in

the original order established at the time of their creation; (2) that records

follow a life cycle; (3) that the care of records should follow a continuum;


333

and (4) that records can be organised according to hierarchical levels in

order to reflect the nature of their creation.

These principles require that archivists and records managers observe

the following guidelines.

The records of separate agencies or organisations must be managed

separately, even if the agencies in question were involved with similar

activities or were managed by the same people. Do not combine the

records of two agencies or organisations. Similarly, the private

records of individuals must not be integrated, even if the individuals

were related or experienced the same events.

Records must be maintained according to their ‗original order‘: that is

according to the filing, classification and retrieval methods

established by the organisation as part of an efficient records

management programme. Records offices and records centres must

create, maintain and store records according to logical and

well-structured records management procedures. Archival

institutions must not change the original order in which records were

received, as that order reflects the way in which the records were

created and used.

Public archival repositories that receive government records through

functioning registry systems often receive records in a clear and usable

original order. The registry process ensures that the creating agency and

the contents of the files are clearly identified. When records are received in

an identifiable order, the archival institution should not reorganise records

by subject, date or medium of material.

If registry systems cease to function adequately, there is a grave

danger that, as records build up in storage rooms, cupboards or hallways,


334

information about their creating agency and original order may be lost.

This is one of the reasons records management is so important in ensuring

the preservation of a valuable, identifiable record.

Organisations today are creating electronic and paper records in

greater and greater quantities; record-keeping systems often do not

manage this material as well as one would like. In order to ensure records

retain their administrative use and archival value, records and archives

managers must be significantly involved with the record-creating process

itself, rather than be passive recipients of records that may no longer be

authentic or reliable.

Records and archives managers must also become more involved

with and understand the processes that lead to the creation of records. It is

not sufficient to study the records and its physical nature and

characteristics. Records professionals must understand the business

functions, activities and working practices that cause documents to be

made, used and maintained.

Records and archives managers must be involved from the

beginning. For example, it is no use designing a classification scheme that

does not match the business processes that give rise to the records to be

classified. Records and archives management must be concerned with all

the processes relating to records throughout their existence.

Records follow a ‗life cycle‘, which records managers and archivists

must understand, and records and archives management must follow a

‗continuum‘ of care.

THE LIFE CYCLE OF THE RECORDS

The life-cycle concept of the record is an analogy from the life of a

biological organism, which is born, lives and dies. In the same way, a


335

record is created, is used for so long as it has continuing value and is then

disposed of by destruction or by transfer to an archival institution. Figure 1

illustrates the life-cycle concept of records.

The effective management of records throughout their life cycle is a

key issue in the public service reform. Without it, vast quantities of inactive

records clog up expensive office space, and it is virtually impossible to

retrieve important administrative, financial and legal information. Such a

situation undermines the accountability of the state and endangers the

rights of the citizen.

Without a management programme that controls records through the

earlier phases of their life cycle, those of archival value cannot readily be

identified and safeguarded so that they can take their place in due course

as part of the nation‘s historical and cultural heritage.

Phases of the Life Cycle of Records

In the simplest version of the life-cycle concept, three biological ages

are seen as the equivalents of the three phases of the life of a record.

In the current phase, records are regularly used in the conduct of current

business and are maintained in their place of origin or in the file store of an

associated records office or registry.

In the semi-current phase, records are still used, but only

infrequently, in the conduct of current business and are maintained in a

records centre.

In the non-current phase, records are no longer used for the conduct

of current business and are therefore destroyed unless they have a

continuing value for other purposes, which merits their preservation as

archives in an archival institution.

Some records management systems recognise only two phases: current


336

and non-current. Figure 1 outlines the life-cycle concept of records.


337

Semi-current

Records Centre

Records Manager

Archives

ArchivalRepository

Archivist

Current

Office or File Store

Appraisal

and Disposal

Secondary

Value

Appraisal and

Disposal

Primary

Value

Registrar

Figure 1: The Life Cycle Concept of Records

Source: Tolani, A.A., Management of Public Sector Records (2008)


338

REFERENCES TOLANI, A.A. READINGS IN RECORDS MANAGEMENT,LAGOS, 2007

TOLANI, A.A. RECORDS MANAGEMENT IN THE PUBLIC SECTOR:PRINCIPLES AND CONTEXT, TOPO-BADAGRY, 2008 TOLANI, AA PROCEDURAL MANUAL FOR RECORDS CENTRE OPERATIOS, ASCON, TOPO-BADAGRY,2000 TOLANI, A.A RECORDS MANAGEMENT IN LOCAL GOVERNMENT,ASCON RECORDS MANAGEMENT SERIES (28), ASCON TOPO-BADAGRY, 1999 ENWERE, J.C. THE ACQUISITION OF RECORDS: THE NIGERIAN EXPERIENCE, INTERNATIONAL JOURNAL OF ARCHIVES, 1980 FISHBEIN, M.A. ―A VIEW POINT ON APPRAISAL OF NATIONAL RECORDS‖, AA, XXX111, 11, 1970 TOLANI, A.A. THEORIES AND PRINCIPLES OF RECORDS AND ARCHIVES MANAGEMENT ASCON RECORDS MANAGEMENT SERIES (45), ASCON, TOPO-BADAGRY, 2001 TOLANI, A.A. REVIEWING EXISTING RECORDS SERVICES ASCON RECORDS MANAGEMENT SERIES (49), ASCON, TOPO-BADAGRY, 2003


339

PROJECT MONITORING AND EVALUATION

Learning Objectives

At the end of this session, participants will be able to:

Define the monitoring and evaluation ( M & E);

Identify the distinction between monitoring and evaluation;

Mention the purposes of monitoring and evaluation;

List some tools used for monitoring and evaluation;

Identify the steps required in developing an M & E system

1. Introduction

A Project is a vehicle that is used for bringing a desired change in a

rational and structured manner. Projects are thus regarded as ―building

blocks‖ of development. Public Sector projects are faced with certain

challenges in that public sector projects are people-oriented. Globally, the

performances of public sector organisations are coming under more

scrutiny from the citizenry. Citizens are demanding that governments

demonstrate value for money in the utilisation of limited resources for the

provision of public goods and services. Within this context, the need to

achieve results from public development interventions has become

extremely important. Therefore, the need for planned and systematic

monitoring and evaluation of public sector policies, projects and


340

programmes takes on new meaning. A project by definition is ―a planned

undertaken of interrelated activities designed to achieve specific objectives

within a given budget and a period of time‖.

A good project design with a clear definition of the problem, clear

identification of the targeted beneficiaries, precise statement of objectives

and results, well spelt out activities for achieving the stated objectives etc.

is essential for project success. The ultimate test for success, however, is

the translation of this design or plan into reality with the project providing

the intended benefits to the intended beneficiaries as envisaged in the

design. This can be an onerous task given that we operate in an unstable

and uncertain environment. To achieve project success, therefore, there is

need for close supervision and control during and after project

implementation to ensure that actual project activities conform to plans or

design specifications and that the completed project provides the desired

benefits. Monitoring and evaluation are management tools that aid this

process - the process of achieving the project‘s outputs and objectives.

Often times, however, monitoring and evaluation are aspects of project

management that are either neglected or taken for granted with the result

that we are today surrounded by a myriad of abandoned and failed


341

projects, in most of the cases, situations that could have been saved

through proper and effective monitoring and evaluation.

2. Overview of Project Management

Project management entails a systematic and highly integrated

approach which tailors the various components and activities on a project

towads the achievement of the project goals/objectives. Project

management is therefore about managing for impact. Impact is the change

a project output/result makes on the life and conditions of the targeted

beneficiaries. The process through which a project achieves this is

depicted in figure 1 below.

FIGURE 1: PROJECT/PROGRAMME LOGIC


342

The project is implemented according to plan. This involves a

process of inputs being used to undertake activities that lead to actual

results. The results should lead to a set of impacts that will improve the

original situation.

3. The Place of Monitoring and Evaluation Within the Project Cycle

Projects are managed through the use of the project cycle which

depicts the various stages of their relationship within the project life cycle .

The project cycle are presented in different ways by different authors and

project related agencies. Figure 2 present a simple project management

cycle consisting of four phases.

FIGURE 2: PROJECT MANAGEMET CYCLE


343

Each of the phases in the project cycle is critical to the success of a

project. The special place of monitoring and evaluation (M & E) be

particularly noted. While M & E has been shown as the last phase in the

cycle, in reality it is an activity that transcends all the stages as illustrated

by the inner cycle. At the first stage of the project, i.e. Need Assessment

and Identification stage, the key task of M & E is to establish baseline

information (i.e. the current situation before the project is implemented).

This information will be used in assessing the impact of the project , i.e. the

changes brought about by the project after implementation. At the

formulation and design phase, the M & E task will be basically to establish

the M & E strategy and plan. This will involve a number of things including

establishing the scope and purpose of the M & E system, identifying the

key performance questions/indicators, monitoring mechanism and

organizational arrangements for the M & E, establishing and indicative

budget, etc. At the project implementation phase, actual M & E is carried

out. The key tasks involve training of staff an partners, gathering and

management of data and communicating the result to stakeholders. At the

review phase, the M & E system is assessed with a view to identifying

weaknesses/problems and rectifying these to make the M & E system to be

more robust and sustainable. It is important to note that the review or


344

assessment of the M & E system can, and it should really, be a continuous

activity throughout the project cycle. This is because of the possibility of

unplanned needs and requests for information on specific issues for which

the M & E system need to be adjusted to provide or accommodate.

Monitoring and evaluation terms have often been used as if they are a

single function. Even though there is a close relationship between the two

terms, they are in actual fact distinct functions. This paper will, therefore,

treat them separately.

4 Project Monitoring

(a) Definition

Monitoring is the continuous oversight of the implementation of an

activity (or project) which seeks to establish the extent to which input

deliveries, work schedules, other required actions and targeted outputs are

proceeding according to plan, so that timely action can be taken to correct

deficiencies or deviations detected.

The purpose of monitoring is to ensure the efficient and effective

implementation of the project by providing timely and accurate information

(fast feedback) on actual project activities as compared with planned

activities so that adjustments can be made while the process is still on.


345

The aim is to achieve a target result at the end of the process. By

continuous or periodic monitoring of the process, input variables as well as

the activities, which affect the results (outputs) can be changed in order to

keep the process ―on track‖ towards the results. It follows, therefore, that

monitoring information is only meaningful when the process is on.

At the most basic level, monitoring is thus primarily concerned with

input and output, i.e:

(vi) the actual flow of resources (personnel, materials, equipment,

etc.) into the project compared with the designed or planned flow;

(vii) the activities of the project (the conversion or transformation of

inputs to output); and

(viii) the flow of output (quantity and quality) from the project to the

target beneficiaries (the delivery system).

(b) Steps

A general sequence of steps used in monitoring includes:

(iv) recording and comparing actual and planned performance

(input delivery, performance of activities, output delivery) with respect

to time, cost and standard (quantity and quality);

(v) identifying any variations/deviations or differences between the two

and the root causes; and


346

(vi) taking corrective action.

(c) Types

On the basis of the focus of monitoring, the following types of

monitoring can be identified:

(xi) Start-up and structures monitoring, e.g.

- Putting up appropriate management structures;

- Prior obligations (Cost sharing etc.)

- Coordinating structures;

- Staff assigned;

- Work plan;

- Monitoring strategy and plan.

(xii) Financial monitoring

- Entails tracking of the actual expenditure made by the

implementing agency, etc.

- Adequacy of allocations;

- Disbursement of funds;

- Actual expenditure;

- Compliance with procedures.

(xiii) Input/output monitoring

- Financial resources are translated into inputs;


347

- Involves follow up on whether procured inputs – materials,

equipment etc are adequate in quantity and quality and if

delivered on time;

- Determine bottleneck;

- Staffing in terms of appropriateness

(xiv) impact monitoring

- Has the project result brought about the desired changes?

(xv) sustainability monitoring

- Can the changes experienced sustained over a long period

of time?

(d) MONITORING TOOLS

Some tools (or instruments) that can be used for monitoring are:

The Work plan

This indicates:

the outputs and activities described in a scheduled

sequence in relation to each immediate objective

their planned starting and completion dates

the person(s), organizations and/or institutions

responsible for carrying out the work


348

The Project Budget

This indicates:

the resources available for the project and their sources

the cost of inputs

the cost of overheads

the unit cost of output

the income from project (where applicable)

Progress Review

Examines periodically work actually done. Seeks to answer the

following questions, among others:

are inputs being made available as planned?

are activities being carried out as scheduled?

are outputs being produced as scheduled?

what changes have taken place, particularly if any

additions or deletions were made?

what remedial actions have been taken or are planned?

Logical Framework

Network Analysis

From the above, it is worthwhile to note that a meaningful monitoring

system requires standards, or bench marks or indicators against which the


349

actual performance of the project can be measured. These should be spelt

out at the design stage in the Work plan and budget.

5. Project Evaluation

The ultimate success of a project is measured by the extent to which

it has achieved its intended objectives (both short-term or immediate

objectives and long-term or developmental objectives). The need to

ascertain whether projects are achieving their objectives or not is becoming

crucial now that concern for people-centered development is growing in the

face of dwindling resources. Evaluation is therefore becoming increasingly

recognized.

(a) Definition

Evaluation is the assessment of the performance of a project in

relation to its stated objectives. It is an assessment of the extent to which a

project has achieved the predetermined objectives.

Evaluation is useful in two major ways:

for enhancing the management of current projects; and

for improving the preparations of new projects by providing

feedback on the basis of the experience and lessons learned in

previous project implementations.


350

(b) PURPOSE

Evaluation can be undertaken for one or more of the following

purposes:

to review the results of the project activity with a view to

determining the degree of achievement of the project

objectives.

to determine problems associated with project implementation

to determine the viability of projects to facilitate decisions on

further resource commitments.

for reformulating objectives, strategies, and projects in the light

of new or emerging needs

to determine the lessons learned for future

programmes/projects

for reinforcing discipline (accountability and transparency)

for resolving non-project issues (political, institutional conflicts,

etc.)


351

(c) CONCERNS

Evaluation is concerned with the following aspects of project

performance:

Effectiveness

To what extent has the project achieved its objectives and reached

the target group(s)

Efficiency

Do the project results or benefits justify the costs incurred?

Relevance

Does the project continue to make sense? Do the needs being

addressed by the project still exist?

Validity of Design

Is the project design logical and coherent? Is the scope adequate

to address the problem? Has the issue of co-ordination between

various agencies been addressed? Is provision made for

sustainability of project results?

Causality

What specific factors or events have affected the project results?

Have any factors affected the achievement of project objectives,

the production of output, the performance of activities, or the


352

participation of intended beneficiaries in planning, design,

implementation, etc?

Unanticipated Effects

Is the project having any significant (positive and/or negative)

effects which were not foreseen? Is the project operation

unpopular? Is the project causing damage to the environment?

Are the project benefits accruing to others, other than the targeted

beneficiaries?

Alternative Strategies:

Is there, or would there have been, a more effective way to

address the problem(s) and achieve the objective(s).

Sustainability

What is the likelihood that project benefits will be sustained for a

long time? What will happen if external support is withdrawn? Are

institutional, management, budgetary, and personnel measures

put in place to ensure sustainability?

These and many more questions are addressed by evaluation

depending on the purpose of the exercise.


353

(d) Types

Evaluation can be classified in several ways, depending on the

criteria used for such classification. The two most common criteria used

are timing and responsibility. On the basis of these criteria the following

types of evaluation can be identified:

(e) Timing

Interim evaluation - takes place at one point during the life of a

project, usually mid-term, and assesses progress made

towards achieving objective(s).

Terminal evaluation - takes place at the end of a project.

Ex-post evaluation - takes place sometime (usually 3 - 5 years)

after project completion.

(f) RESPONSIBILITY (WHO EVALUATES)

Self-evaluation - conducted by project management i.e.

persons directly involved in project execution. Some of its

advantages are that:

it benefits from insiders knowledge

it facilitates immediate feedback

it is cost-effective


354

Independent evaluation - can either be:

internal - when conducted by executing agency, but not

by people directly involved in project execution; or

External - when an outside consultant or expert is brought

to conduct the evaluation.

6. Performance Indicators

(i) What are they?

Performance indicators are measures of inputs, processes, outputs,

outcomes, and impacts for development projects, programs, or strategies.

When supported with sound data collection—perhaps involving formal

surveys—analysis and reporting, indicators enable managers to track

progress, demonstrate results, and take corrective action to improve

service delivery. Participation of key stakeholders in defining indicators is

important because they are then more likely to understand and use

indicators for management decision-making.

(ii) What can we use them for?

■ Setting performance targets and assessing progress

towards achieving them.

■ Identifying problems via an early warning system to allow

corrective action to be taken.


355

■ Indicating whether an in-depth evaluation or review is

needed.

Advantages:

■ Effective means to measure progress toward objectives.

■ Facilitates benchmarking comparisons between different

organizational units, districts, and over time.

Disadvantages

■ Poorly defined indicators are not good measures of success.

■ Tendency to define too many indicators, or those without

accessible data sources, making system costly, impractical,

and likely to be underutilized.

■ Often a trade-off between picking the optimal or desired

indicators and having to accept the indicators which can be

measured using existing data.

(7) Designing and Setting up an M & E System

In designing and setting up an M & E system, it may help to follow

these steps:

Step 1. Establish the purpose and scope of M & E: Why is M & E

needed and how comprehensive should the system be? It is

important to review the purpose and scope of M & E with key


356

stakeholders.

Step 2. Identify performance Questions, Information Needs and

Indicators: What do we need to know to monitor and evaluate

the project in order to manage it well|? This involves:

- Assessing the information needs and interest of all key

stakeholders.

- Precisely defining all key performance questions, indicators

and information needs for all levels of the objective

hierarchy.

- Checking each bit of information for relevance and end-use.

Step 3. Plan Information Gathering and Organization:

How will the required or data be gathered and organized?

This entails:

- Selecting what data collection methods to use, by whom and

how often. There are many options: more quantitative or

more qualitative method, more or less participatory methods,

or more or less intensive methods.

- Develop formats for data collection and synthesis.

Step 4. Plan Critical Reflection Processes and Events:

How will we make use of the information gathered and use it to


357

make improvement? This will involve:

- Detailing which methods/approaches to be used with which

stakeholder groups and for what purpose.

- Making a schedule that integrates all the key events.

Step 5. Plan for Communication and Reporting: How and whom do

we want to communicate what in terms of project activities and

processes. This will entail:

- Listing all the audiences, what information they need, when

they need it and in which format.

- Defining what is to be done with the information – simply

send, provide discussion for analysis, seek relevant

feedback for verification etc.

Step 6. Plan fro Necessary Condition and Capacities:

What is needed to ensure that the M & E system will work?

There is need to define:

- Number of M & E staff required, their responsibilities and the

resources and incentives needed to make M & E work.

- Organizational relationships between key M & E

stakeholders.

- A detailed budget


358

It is important to note that careful thought and thoroughness are

needed in designing and setting up the M & E system for it to be effective

and serve the purpose of the project.

(7) Key Success Factors

For M & E to be successful and contribute meaningfully in the

management of projects or any activity, it it is suggested that the following

factors should be in place;

Management/Political support.

Clear definition of purpose of M & E.

Buy-in by all stakeholders.

Development and use of relevant performance indicators.

Appropriate personnel/staffing

Requisite capacity development – institutional and human.

Strong coordination mechanism.

Adequate resources.

Good reporting system supported by appropriate responsibility and

authority.

Timely decision making.

Using of Lessons Learned

Principle of need-to-know


359

8. Conclusion

Projects play a significant role in helping nations in attaining

development status. Institutionalisation of project management into the

nation‘s socio economic fabric would ensure that government‘s projects are

delivered within budget, on time and with full quality specification. An

essential management tool in project management is monitoring and

evaluation.

Monitoring and evaluation enhance the effectiveness of development

interventions by establishing clear links between past, present and future

interventions and results. Monitoring and evaluation can help an

organization to extract, from past and ongoing activities, relevant

information that can subsequently be used as the basis for programmatic

fine-tuning, reorientation and planning . Without monitoring and evaluation,

it would be impossible to judge if work was going in the right direction,

whether progress and success could be claimed, and how future efforts

might be improved. Today‘s managers are therefore required to actively

apply the information gained through monitoring and evaluation to improve

strategies, programmes and other activities.


360

REFERENCES

Dr. Bernice N. Harris (2000), Project and Programme Management For Communicable Disease Coordinators: Module 7, Project Evaluation and Monitoring. www.jcu.edu.au/school/phtm/PHTM/salinks/ppm7.doc

Capturing Experience Monitoring and Evaluation; http://web.mit.edu/urbanupgrading/upgrading/issues-tools/tools/monitoring-eval.html

Rebekka E. Grun (2006), Monitoring and Evaluating Projects: A step-by-step Primer on Monitoring, Benchmarking, and Impact Evaluation, The World Bank, Washington DC 2000, http://siteresources.worldbank.org/HEALTHNUTRITIONANDPOPULATION/Resources/281627-1095698140167/GrunImpactEvaluationManualDraft.pdf Managing For Impact in Rural Development,: A Guide For Project M & E, http://www.ifad.org/evaluation/guide/ Designing Project Monitoring and Evaluation, http://preval.org/documentos/00546.pdf Monitoring and Evaluation: Some Tools, Methods & Approaches(2004), World Bank http://lnweb90.worldbank.org/OED/oeddoclib.nsf/DocUNIDViewForJavaSearch/A5EFBB5D776B67D285256B1E0079C9A3/$file/MandE_tools_methods_approaches.pdf Woodhill Jim (2000), Planning, Monitoring and Evaluating Programmes and Projects: Introduction to key concepts, Approaches and Terms, IUCN: The World Conservation Union. Monitoring and Evaluation Framework; UNDP Handbook on Monitoring For Results

http://web.mit.edu/urbanupgrading/upgrading/issues-tools/tools/monitoring-eval.html

http://web.mit.edu/urbanupgrading/upgrading/issues-tools/tools/monitoring-eval.html