Upload
others
View
0
Download
0
Embed Size (px)
Citation preview
ASOGWA, MATHIAS O.
PG/Ph.D/07/48107
PERFORMANCE MANAGEMENT OF CIVIL SERVICE IN ENUGU STATE, NIGERIA, 1999 - 2011
FACULTY OF SOCIAL SCIENCE
DEPARTMENT OF PUBLIC ADMINISTRATION AND LOCAL GOVERNMENT
Paul Okeke
Digitally Signed by: Content manager’s Name DN : CN = Webmaster’s name O= University of Nigeria, Nsukka OU = Innovation Centre
2
PERFORMANCE MANAGEMENT OF CIVIL SERVICE
IN ENUGU STATE, NIGERIA, 1999 - 2011
By
ASOGWA, MATHIAS O. PG/Ph.D/07/48107
A THESIS PRESENTED TO THE DEPARTMENT OF PUBLIC ADMINISTRATION AND LOCAL GOVERNMENT,
UNIVERSITY OF NIGERIA, NSUKKA IN FULFILLMENT OF THE REQUIREMENTS FOR THE AWARD OF
DOCTOR OF PHILOSOPHY DEGREE (Ph.D) IN PUBLIC ADMINISTRATION (HUMAN RESOURCES MANAGEMENT OPTION)
SUPERVISOR: PROF. FAB. O. ONAH
SEPTEMBER, 2014
3
CERTIFICATION
This is to certify that Asogwa, Mathias Oheja, a postgraduate
student of the Department of Public Administration and Local
Government, University of Nigeria, Nsukka with registration
Number PG/Ph.D/07/48107, has satisfactorily completed the
requirements for the award of Doctor of Philosophy Degree (Ph.D) in
Public Administration (Human Resources Management Option) of
this University.
This Research work is original, and has not been presented
previously for the award of any diploma or degree of this or any
other University.
___________________________________________ Asogwa, Mathias Oheja
Student
___________________________ Prof. Fab. O. Onah
Supervisor
4
APPROVAL PAGE
This thesis has been approved on behalf of the Department of
Public Administration and Local Government, University of Nigeria,
Nsukka, Nigeria.
By
___________________________ __________________________ Prof. Fab. O. Onah Dr. (Mrs.) S. U. Agu Supervisor Head of Department
__________________________ __________________________ Prof. I. A. Madu External Examiner
5
DEDICATION
This research work is dedicated to the Almighty God who
saved my life during this academic pursuit.
6
ACKNOWLEDGEMENT
So many people are worthy of mention for their invaluable
contributions to the successful completion of this work. I sincerely
thank my Supervisor, Prof. Fab. Onah for his fatherly care and
encouragement to me in carrying out this project.
I also acknowledged Prof. Chikelue Ofuebe of the PALG
Department for discussing this work. I sincerely acknowledged the
motherly care of the present Acting Head of
Department, Dr. (Mrs.) S. U. Agu for her care and encouragement. I
am equally grateful to all the lecturers in the Public Administration
and Local Government Department that had contributed immensely
to this work.
May I thank my bosom friend and adviser, Mr. Louis Ezema
for standing by me when I needed him for a help. Worthy of
mention include: Mrs. Theresa Okafor, Amaka Ugwuta, Obinna
Ugwu, Ugwu Jacinta, and other PALG non-tutorial staff. Tony
Okolie, a colleague in the PALG Department had been of great help
to me.
My thanks go to the following staff of the Library Section: Mr.
M. Osai, Mr. Okoye Stanley, Mrs. Onoh Chioma, Mr. Ezema Jonas
and a host of others. Mr. Agboeze Martin (Mazi) is a brother who
had to forgo his comfort to give a helping hand. May I remember
7
Mr. Joseph Ezema (Ogbuehi) and Mr. Christopher Ezema Ezenwata
who are colleagues and bosom friends – I thank them all.
My good friend Dr. Romanus Ezike is to be mentioned here as
he gave me the ‘Ladder’ that helped me when the tunnel was dark.
Dear, I cannot repay you but the Lord can. I sincerely thank my
wife and children for their patience throughout the period of this
pursuit. I pray the Lord to reward all of you abundantly.
Dr. Iwundu, I. E. had been a motivator; he pushed the vehicle
that carried me when the road was rough. The Lord is generous in
his blessings and your portion is great there.
To my parents who had to starve at times to train me. Late
Christopher Asogwa, you are a father indeed. May the Lord accept
your soul in His paradise. Amen.
I sincerely thank Mr. Asadu Patrick for typing all my works
especially this thesis. May the good Lord reward you abundantly.
Those I cannot mention, your own blessings are many. May
the good Lord who knows how to bless shower his blessings upon
you. Amen.
Asogwa, M. O. PG/Ph.D/07/48107 University of Nigeria Nsukka September 2014
8
TABLE OF CONTENTS
Title page … … … … … … … … … i
Certification … … … … … … … … ii
Approval page … … … … … … … … iii
Dedication … … … … … … … … … iv
Acknowledgement … … … … … … … v
Table of Contents … … … … … … … … vii
List of Tables … … … … … … … … x
List of Figures … … … … … … … … xii
Abstract … … … … … … … … … xiii
CHAPTER ONE: INTRODUCTION … … … … … 1
1.1 Background to the Study … … … … … 1
1.2 Statement of the Problem … … … … … 6
1.3 Objectives of the Study … … … … … … 12
1.4 Significance of the Study … … … … … 13
1.5 Scope and Limitations of the Study … … … … 14
CHAPTER TWO: LITERATURE REVIEW … … … … 16
2.0 LITERATURE REVIEW … … … … … … 16
(a) Historical Development of the Civil Service in Nigeria … 16
(b) Contending Issues in Performance Management of Enugu State Civil Service … … … … … 21
(c) Enhancement of Performance Management of Enugu State Civil Service … … … … … … 44
(d) Barriers to Performance Management of Civil Service … in Enugu State … … … … … … … 54 (e) Remedies to the Challenges of Performance Management of Enugu State Civil Service … … 61
2.1 Gap in Literature … … … … … … 74
9
2.2 Theoretical Framework ... … … … … 74
2.4 Justification for the Adoption of the Theory … … 77
2.5 Hypotheses … … … … … … … … 80
2.6 Operationalisation of key Concepts … … … … 80
CHAPTER THREE
3.0 STUDY AREA AND RESEARCH PROCEDURE … … 83
3.1 Study Area: Enugu State … … … … … 83
3.2 Research Procedure … … … … … … 91
3.2.1 Research Design … … … … … … … 91
3.2.2 Sources of Data Collection … … … … … 91
3.2.3 Population of the Study … … … … … … 92
3.2.4 Sample and Sampling Procedures … … … … 94
3.2.5 Method of Data Collection … … … … … 95
3.2.6 Reliability and Validity of Instruments … … ... 96
3.2.7 Method of Data Presentation and Analysis … … 96
CHAPTER FOUR: DATA PRESENTATION, ANALYSIS AND FINDINGS … … … … … 98
4.1 Data Presentation and Analysis … … … … 98
4.2 Findings … … … … … … … 117
CHAPTER FIVE: DISCUSSIONS … … … … 122
CHAPTER SIX: SUMMARY, RECOMMENDATIONS AND CONCLUSION … … … … 153
6.1 Summary … … … … … … 153
6.2 Recommendations … … … … … 155
6.3 Conclusion … … … … … … 157
BIBLIOGRAPHY … … … … … … 159
APPENDICES ix
10
APPENDICES
1 INTERVIEW SCHEDULES … … … … … 172
2 SALARIES AND WAGES BULLETIN … … … … 177
3 APPOINTMENTS OF JUDGES IN ENUGU STATE
AND THEIR JUDICIAL DIVISIONS … … … … 178
4 ENUGU STATE GOVERNMENT EXECUTIVE
ORGANISATIONAL STRUCTURE … … … … 179
5 T-TEST SUMMARY RESULT … … … … … 180s
11
LIST OF TABLES
Table 1: Civil Service Reforms in Nigeria 1934 1994 … 20 Table 2: Types of “Forced Ranking and how it works … 31 Table 3: Nigerian Federal Ministries indicted by Vincent Azie Panel (2003). … … … 60
Table 4: Population of Enugu State Ministries and parastatals … … … 93
Table 5: Sample of Ministries, of Enugu State Civil civil service … … … … … … 94
Table 6: Sex distribution of the respondents … … … 98
Table 7: Status distribution of staff … … … … 99
Table 8: Marital status distribution of respondents … 99
Table 9: Distribution of educational qualification of respondents … … … … … … 100
Table 10: Age distribution of respondents … … … 100
Table 11: Respondents’ Opinion towards training and retraining of staff, promotions, and adequate housing and car loans … … … … … 102
Table 12: Respondents’ on the obstacles associated with workers Performance Management appraisal which impede Performance Management on Civil Service in Enugu State … … … 106
Table 13: Respondents’ Opinion on the hindrances that impede measures employed to engender Performance Management of civil service in Enugu State. … … … … … 112 Table 14: Field Data on Evaluation of Training, retraining, Promotion, housing/car loans, motivation and Competitive pay … … … … … 126
Table 15: Summary of Results of Pilot performance Evaluation testing on four selected Ministries, Departments/Agencies in Enugu State … … 130
12
Table 16: Field Data on Obstacles associated with workers’ Performance management appraisal … … … 133
Table 17: Field Data on hindrances that impede on the measures Employed by Enugu State government to engender Performance management of civil service … … 140 Table 18: Field data on the measures that can be employed to engender performance management in Enugu State civil service. 143
13
LIST OF FIGURES Figure 1: Graphic view of the difference between Performance Appraisal and Management … … 28
Figure 2: Performance Management cycle … … … 33
Figure 3: Performance Management System Model … … 46
Figure 4: Performance Concentric Model … … … 57
Figure 5: Map of Enugu State … … … … … 90
14
ABSTRACT
This study is an investigation of performance management in Enugu civil service 1999 – 2011. At a close watch of the performance position of the service, one cannot help posing a number of questions on its main problem areas of employee training and development, appraisal and performance. The questions are (1) what are the problems of performance management of civil service in Enugu State? (2) Did performance appraisal impede performance management of civil service in Enugu State (3) what measures were employed to engender performance management in Enugu State civil service. Based on the above research questions, the study tested the hypotheses that (1) performance management was significantly enhanced through training and retraining of staff, promotions, high salaries and granting of housing and car loans. (2) Staff appraisals contributed positively towards performance management in Enugu State civil service. (3) There existed measures that were be employed to engender performance management in Enugu state civil service. The population of the study was established and put at about 10,100. From this, a sample size of five percent (505 persons) was drawn. The procedure was abinitio stratified. Both primary and secondary sources of data collection were employed. The techniques used for data collection under the primary source were scheduled and unscheduled personal interviews. Books, periodicals (including academic journals) government publications, documents from organizations, and unpublished but relevant works were also utilized. Efforts were made to establish reliability of the data-gathering instruments using Cronbach Alpha procedure. A number of findings were made. Notable among them were: (1) Training and retraining, promotions, high salaries and granting of housing and car loans of staff was not adequate hence low performance. (2) Performance appraisal measure apparatus were faulty hence could not measure key performance indicators of individual and team workers. (3) Measures put in place by Enugu State successive governments (1999 – 2011) could not enhance performance management of workers. This study recommended that workers of Enugu State civil service be exposed to training, retraining especially the Internet Communication Technology (ICT), high salaries, incentives in form of housing and car loans. There should be proper evaluation technique for workers input against the key performance indicators. This would enable them ascertain those fulfilling the organizational goals and those that needed re-training and those that cannot fit into the organization.
15
CHAPTER ONE
INTRODUCTION
1.1 Background to the Study
With the coming of globalization era, government organizations
around the world will face the challenges in the new century of
complex governance from both internal and external environments.
The spillover effect of functions, the linking effect of issues and the
involving of pluralistic actors have appeared in a number of new
public issues and public affairs. The effects not only increase the
complexity of public governance but also cause public organizations,
within the pluralistic governance ability to ensure the delivery of
quality services. In this regard, the civil service is an institution
saddled with the responsibility of designing, formulating and
implementing public policy, and discharging government functions
and development programmes in an effective and efficient way. In
many African countries especially Nigeria, development efforts and
government policies are threatened by the incompetency and
ineffectiveness of the civil service. As a result of this, successive
governments in Nigeria (from post-independence era to the
contemporary times), have embarked on articulated patterns of
reforms aimed at improving the efficiency and effectiveness in the
civil service (Salisu, 2001:1).
16
Performance management has its roots in the early 1900s with
special attention on this practice in the United States of America, and
United Kingdom military for evaluating officers (Hartog et al., 2004).
Performance management can act as a bridge between corporate
strategy and concrete interventions in the process of goal achievement
(Boselie, 2010). The gap between justification of pay and the
development of skills and knowledge became a huge problem in the use
of performance management. This approach of managing performance
was developed in the United Kingdom and the United States much
earlier than it was developed in Australia.
The New Performance Management approach was adopted by
American’s Vice President Al Gore’s National report, from Red Tape
to Results: creating a Government that works better and costs less,
explicitly sought “a new customer service contract with the American
people, a new guarantee of effective, efficient, and responsive
government” (Gore, 1993).
The American Vice-President, Al-Gore, called for the following
steps, among others: putting customers first, making service
organizations compete with one another, creating market dynamics,
using market mechanisms to solve problems, empowering employees
to get results, decentralizing decision making power, streamlining
the budget process, decentralizing personnel policy, and
streamlining procurement. (Gore, 1995).
17
Armstrong (2008:4), pointed out that the application of
performance management is to improve the organization member’s
performance by developing the capability of the team and its
members through a strategic and integrated system which can
encourage organizations to operate successfully. Since 1980s,
government reinventing movements around the world have initiated
the ‘new public management’ trend. Therefore, various theories,
definitions and methods based on performance management have
eventually become significant political tools for improving the
performance of public organizations and the quality of public
services. Meanwhile, the performance-based government operation
has become fundamental to implementing the essence of new public
services and strengthening national competitiveness.
In order to realize the goals of social service delivery and
development, capable workforce is required. These are products of
employee recruitment and retention strategies of the civil service to
achieve performance. According to Olowu and Adamolekun (2005), it
is becoming more essential to secure and manage competent human
resource as the most valuable resource of any organization, because
of the need for effective and efficient delivery of goods and services
by organizations, whether in public or private sector. Therefore, for
an organization to realize its goals, appropriate strategies for
18
employee recruitment and retention are sine-qua-non for enhanced
performance.
According to Armstrong and Baron (1998), performance
management is both a strategic and an integrated approach to
delivering successful results in organizations by improving the
performance and developing the capabilities of teams and
individuals. The term performance management gained its
popularity in early 1980’s when total quality management
programmes received utmost importance for achievement of
superior standards and quality performance.
Organizations are established in both private and public
sectors for some basic objectives, for which reason such
organizations were established. The basis for assessment of such
organization’s success is on the achievement of the objectives. It is of
note that the important role of the government is carried out by the
Civil Service. Ofuebe (2005:1), quoting Abati (2005), states thus:
As a people, we must insist on the need for the state and its custodians to expand the role of the public sphere. This means making the governance process more transparent and accountable with less empty rhetoric that produces moral turpitude. The crisis of democracy does not point ultimately to the failure of democracy but to the failings of its managers. Every society faces its own crisis, how the crisis is resolved is where the difference lies. To retain legitimacy, the Nigerian government must do business differently.
19
Onah (2001: 8), emphasized the need for workers to be highly
motivated in order to perform well. This assertion was made vivid
when he was discussing the strategies for mass mobilization. He
continued that mass mobilization will be a herculean task in a
situation of abject poverty.
As Margret (1976: 55) pointed out, whether or not workers live
up to expectations of their employers depends on management
success in motivating them adequately at work. Adedeji (2001: 6)
opined that Nigerian Civil Servants are the most demoralized in West
Africa. He stated that a demoralized worker cannot perform
optimally because he is faced with emotional and psychological
trauma which affects his performance and unless and until he is
induced, the organization he represents will continue to record
minimal success.
Onah (2008:4), had observed that the efficiency with which an
organization can perform will depend to a large extent, on how its
human resources can be managed and utilized. Every manager
must, therefore, be able to work effectively with people and also be
able to solve the various problems the management of people may
entail. He noted that most organizations are becoming more complex
in nature and, therefore, leaders in these organizations are expected
to have greater technical competence and a better understanding of
human behaviour.
20
Enugu State Government recognizes that in order to establish
best practices in providing service to the citizens; the central focus
should be the service provider who attends to the citizens at the
service windows. It was clearly identified that if the public servants
are repositioned to deliver best service, the citizen will not be
shortchanged but will be assured of his or her rights with regard to
receipt of government services.
1.2 Statement of the Problem
Since the inception of Nigerian public/civil service and before
the efforts of the Obasanjo administration, there have been 14
previous major attempts through commissions, committees and
teams, beginning with Hunt’s Commission of 1934, at addressing
the state of the service, incorporating both conditions of service, staff
performance and service delivery (Adegoroye 2006 and Salisu 2001).
Underlying the various efforts is the need to create a holistic
perspective in government management, one that would match the
comprehensive outlook applied in economic planning, while at same
time ensuring that the service is staffed with the right caliber of
personnel.
Each attempt at ‘reforming the Nigerian public service has
usually been premised on some justifications to portray
government’s moves as altruistic. The Obasanjo administration
21
almost immediately at inception initiated the reform process. The
first step in this direction was the organization of a 10-day Seminar
for Permanent Secretaries in the employment of the Federal
Government. This was followed by a series of similar seminars
organized for officers at the Directorate level. The communiqué
issued at the end of the seminar raised issues that are being
addressed by the reform measures. Some of them, highlighted by
Adegoroye (2006) are:
i) The need to address the massive expansion in the size of the
service which had risen to 350 per cent between 1960 and
1999, compared with a national population increase of 160 per
cent over the same period;
ii) Dealing with the decline in the institutional capacity,
efficiency, effectiveness and commitment of the service;
iii) Focusing more on ethical and moral issues, and in particular,
addressing the popular perception that the civil service was
corrupt;
iv) Restructuring and streamlining the service.
According to Kerslake (2013: 3):
Improving our approach to performance management is about being the best that we can be, both as an organization and as individuals. Strong staff performance is crucial to the creation of a more efficient and effective civil service with the capability to deliver more for less, and ensuring that we are all delivering to the best of our ability is a big part of that. Achieving the civil service Reform Plan’s goals
22
relies on a workforce that is constantly seeking to improve, at each and every grade or level.
The most important part of improving performance is to receive
honest feedback from our managers, our colleagues, our partners
and our customers. Without this, it is hard to focus our efforts on
the right areas to improve. The new performance system rightly
focuses on both ‘what’ we do and ‘how’ we do it. As with all new
systems, we are taking stock of how it has worked and where it can
be strengthened.
The rising expectations coupled with spending cuts means the
civil service needs to change to meet the long term challenges that
all economies are facing. Civil servants themselves want change:
better performance management; more active development of
careers; and better leadership of change. At the same time, the
economic and financial challenges, public service reform and rising
consumer expectations mean government needs to operate
differently.
Robinson and Robinson (1995) reiterated that the most
significant direct benefits of training and manpower development are
clarity in job duties and responsibility as well as increases in
employee’s competence among others. Also, Onuoha (2000) pointed
that the best way of managing depends on the specific
circumstances and environments. He maintained that training and
manpower development are the products of given situations, such
23
that no training method, technique or style is the best for all trainees
under all conditions.
The basis of the public sector’s effort to improve its efficiency
and effectiveness is performance measurement, or what some
analysts prefer to call “performance indicators”, on the grounds that
the term “measurement” implies an ability to precisely measure
policy outcomes, even though such precision is rarely attained in the
messily human arena of policy implementation (G. Gaither et al.
1994). If resource allocation questions were the only use of public
programme evaluations, they would provide more than adequate
justification for conducting then, but there often are deeper
motivations for initiating programme evaluations. As Riecken (1977
page 5) noted:
Evaluation research can be invoked for a variety of purpose, not only as a means of improving programmes. Sometimes evaluation is undertaken to justify or endorse an ongoing programme and sometimes to investigate or audit the programme in order to lay blame for failure, abolish it, change its leadership, or curtail its activities.
Also, performance appraisals have gained greater attention as
governments at all levels have been under public pressure to be
more efficient, economical, effective, and responsive.
Obi and Chukwuemeka (2006: 12) observed that it is obvious
that inefficiency of civil service is a discredit to the democratic
government in Nigeria. They are caused by the strict adherence to
24
the bureaucratic rules by the civil service thus, leading to poor and
belated policy making and subsequently Methuselah age to be
implemented, all in the name of due process, while the populace
which consumes the outputs suffers at the end. This obviously
differs from military administration, where the military administrator
gives order to the civil service and it shall be carried out. Example
was the military regime of Mike Torey in Enugu State.
According to a guide to Enugu State Service Compact (SERVICOM)
and Performance Improvement Bureau (PIB), Service Standards and
Operations, the Enugu State established it in conjunction with
British Government during Dr. Chimaroke Nnamani’s tenure for the
improvement of the lapses in the civil/public service.
Governor Sullivan I. Chime highly favoured a 4-point agenda
for development. These include: physical infrastructure, economic
expansion and empowerment, rural development and service
delivery. Governor Chime’s led administration as captured in the 4-
point agenda (2012) on encouraging service and accountability
asserts:
“The public service must provide services to the people of the state; and every public servant, including political office holders, must be accountable to the people for the services for which he has been employed to render.”
The Enugu State Government 4-point agenda which is “Service
Delivery and Good Governance” was the driving force that propels
25
the Government determination to having a model and functional
public service. Enugu State was poised to give immediate attention
to ensuring re-orientation, training, retraining and development of
her staff including training on legal issues and Internet
Communication Technology (ICT). Government was also concerned
on how to organize retreat for political office-holders on Public
Service Rules and Financial Instructions. Government was also
poised to consider the improvement of the condition of service of
civil/public servants. The Enugu State government had also the
problem of improving the work environment to sustain confidence
and trust of the citizens. The resuscitation of housing and car loans
were considered. Government of Enugu State is making an effort to
stem favouritism in the service and entrench a transparent reward
system in the service.
The following key performance indicators are germane to any
public enterprise. These include: Elected administration leaders
who are able to improve the political control in the civil service
system through carrying out performance management;
Establishment of the principle of accountability in the democratic
system through performance management; Having managers within
the civil service system who could utilize performance management
to strengthen the efficient management of administration processes,
to improve the quality for administration services and increase the
26
competence of public organizations; For civil service officials who
carry out policies, performance management may have a steering
navigation effect and ensure that associated members understand
the work requirement and essential responsibility required by
managers.
As a result of these key performance indicators, we pose the
following research questions:
(1) What are the problems of performance management of civil
service in Enugu State?
(2) Does performance appraisal impede performance management
of civil service in Enugu State?
(3) What measures can be employed to enhance performance
management in Enugu State civil service?
1.3 Objectives of the Study
The general objectives of this study were to examine the
performance management of civil service in Enugu State 1999-2011.
The specific objectives were to: -
(1) ascertain the problems of performance management of civil
service in Enugu State;
(2) find out the effect of employee performance appraisal on
performance management of civil service in Enugu State;
(3) examine the measures that can be employed to enhance
performance management in Enugu State civil service.
27
1.4 Significance of the Study
This study has both theoretical and empirical significance that
served as justification for the study. This work uncovered the causes
of poor performance management system of Enugu State civil
service. It will also help students of Social Sciences and other
disciplines in understanding relevant issues in performance
management system in organizations.
Empirically, this work will enable managers of organizations to
translate organization and project objectives into individual
contribution. It will enable managers to assess delivered
performance against targets. It will also help job holders to clarify
understanding of objectives and identify issues pertaining to their
schedule of duties. This project will enable managers of
organizations for performance planning which is pivotal for effective
performance reviews and assessments. It is with good quality, agreed
objectives can the management of performance be fully effective. The
scripture categorically stated that: ‘my people perish because of lack
of wisdom’. (Hosea 4: 6).
This research will enable managers of organizations to give
out the new civil service competency framework to all civil servants
across all grades. This will set out how the people in the civil service
are to work. This work will enable policy makers to make policies
that will communicate rewards, rationale and criteria to the workers.
28
This work will be of immense help to the workers themselves as this
will enable them do what they ought to do. It will bring to limelight
that fact that they are stakeholders of the organizations and as such
their success to meet the organizational goals will invariably
determine the success of their own personal interest or needs.
In addition, this work would enable government and private or
non-governmental organizations to treat people as unique
individuals that had varied needs that should be met in the work
place. Human behaviours are determined by what motivates them.
Since an individual’s performance is a product of motivation, a
concerted effort should be made by government to provide the
driving force that would enhance job satisfaction.
1.5 Scope and Limitations of the Study
Scope:
The study centered on performance management with
particular reference to Enugu State civil service. The areas of
performance management to be investigated include training,
motivation, performance appraisal and competitive pay. The period
of study covered 1999 to 2011 – the period covered Dr. Chimaroke
Nnamani’s tenure (1999-2007) and first tenure of Barr. Sullivan
Iheanacho Chime (2007-2011).
29
Limitations of the Study
In the course of carrying out this work, some difficulties were
encountered. For instance, some of the documents that were
collected from the Enugu State Civil Service Commission were not
easily released to us by the workers. They were unwilling to do so
because the documents were tagged “official documents”. The
workers were also reluctant to give us some detailed information for
this work as they were afraid of being victimized. Nevertheless, we
applied to the Permanent Secretary of the Commission who approved
the release of some of the documents needed for this research.
Knowing the importance of this research to the enhancement of
performance of workers in Enugu State, he sympathetically ordered
the release of the documents needed.
30
CHAPTER TWO
LITERATURE REVIEW
2.0 Literature Review
The literature review focused on the following sub-themes.
(a) Historical development of the civil service in Nigeria.
(b) Contending issues in performance management of civil service
in Enugu State.
(c) Enhancement of performance management system in
Enugu State civil service.
(d) Barriers to performance management of civil service in Enugu
State.
(e) Remedies to the challenges of performance management of
Enugu State civil service.
(a) Historical Development of the Civil Service in Nigeria
The Civil Service was one of the legacies bequeathed to Nigeria
by the colonial masters. However, opinion differs about the origin of
the institution. The first school of thought traced the origin of the
Civil Service to 1861 when Lagos was annexed by the colonial
masters. To this school, rudimentary administration commenced at
this particular time, though on a limited scale. The second
perspective upholds the position that the Civil Service in Nigeria
began in 1900. By that date, the colonial civil service as an
institution was established in Southern Nigeria and Northern Nigeria
and a new instrument was published to re-organize and reinforce
31
the old service in Lagos colony (Jega, 2001: 32). The third school of
thought argued that the origin of the Civil Service in Nigeria could
not pre-date Nigeria itself. Thus, they maintained that the year 1914,
when the Southern and Northern Protectorates were amalgamated
was the true origin of the Civil Service in Nigeria (Jaja, 2001).
Whatever the origin, there is no doubt that the Civil Service is an
alien institution transplanted to Nigeria by the British colonial
masters. Therefore, the Nigerian Civil Service since independence
has been patterned along the British system. (Excerpt; The 1988 and
the present reforms which attempted to restructure the service in
line with the presidential system of government). Three features
characterized the colonial phase of the Civil Service (Olowu et al.,
1997). The first was the domination of the upper echelon of the Civil
Service by Europeans. For instance, in 1948, 245 of 2,541 and in
1952, 685 out of 3,679 senior posts were held by Nigerians. In June
1960, a few months before independence the number of Nigerians
occupying senior service positions had increased to 2,308 out of
4,057. Second there was concentration of all power (executive,
judicial and legislative) in the hands of appointed officials to run the
affairs of the colonial territory (Adamolekun, 1986: 33). The third
feature was that the colonial service co-opted traditional rulers in
administering Nigeria (Indirect Rule System). This system served the
purpose of cost savings to the colonial power, gave colonial rule
32
some measures of legitimacy and made the task of tax collection
easier by assigning the traditional rulers as key agents of tax
collection. It is important to note that, the evolution of the federal
Civil Service from colonial rule to the present is a reflection of the
political transitions and crises that the country had witnessed. As
Olowu, Otobo and Okotoni (1997: 3) wrote:
The evolution of the Federal Civil Service from colonial rule to the present reflected the political transitions that the country has witnessed. The colonial civil servants – consisting of the British and Nigerians – served at the behest of the British Monarch. They carried out their duties on the instructions of the British government, which was theoretically at the service of the Crown. Thus, the Nigerian Civil Service up till 1954 can be said to have acted as State Servants. From independence in 1960 and thereafter, the federal civil servants have served as professional public servants.
Two major factors have influenced the structure, size and
functions of the Civil Service in Nigeria. Firstly, the political and
government instability, that has plagued the country since
independence when the military took over power in 1966 changed
and expanded the role of the Civil Service and its influence in policy
and decision-making considerably. The Civil War which started in
1967 and the Federal Government policy of 3Rs (Reconstruction,
Rehabilitation and Reconciliation) which came immediately after the
war also, fundamentally, altered the functions, size and shape of the
Civil Service. The second factor is the economic fortunes and
misfortunes of the country. The post 1970 period – the indigenization
33
decrees and the idea of State Control of the “commanding heights” of
the economy resulted in an increased and more direct role for the
Civil Service in economic management. More importantly, the
discovery of oil wealth in the 1970’s enabled federal government to
increase its participation in the economy. By the late 1970s and
early 1980’s the economy of Nigeria had started witnessing some
problems. As a result of the economic downturn, further changes
emerged in mid 1980’s with the economic policy reform package
commonly referred to as the Structural Adjustment Programme
(SAP). Directly and indirectly, the policy of Structural Adjustment
Programme affected the Civil Service in two major ways. First was
the size of the Civil Service and second was the role of the Civil
Service. Through the policy of SAP many parastatals that were
hitherto poorly managed were privatized and some commercialized.
(Adegoroye 2006:27) Therefore, there was a ‘technical’ reduction in
the size of the public service as some of the Civil Servants were
either disengaged or transferred to the private sector. Second, the
role of the Civil Service as economic managers reduced drastically.
The 1988 reforms which came later, sought to address both the
political and economic dimensions of the Civil Service reform. This
was the first real effort aimed at transforming the inherited British-
style civil service into one that is adapted to Nigerian political and
economic realities. One thing to note here is that, since
independence, the Civil Service has not adequately met the
challenges of development. This and other factors like the global
34
economic, political and technological environment were responsible for
the reforms that have taken place so far.
Since the inception of the Nigerian public/civil service and
before the efforts of the Obasanjo administration, there have been 14
previous major attempts through Commissions, Committees and
teams, (see Table 1) beginning with Hunt’s Commission of 1934, at
addressing the State of the service, incorporating both conditions of
service, staff performance and service delivery (Adegoroye 2006 and
Salisu 2001). Underlying the various efforts is the need to create a
holistic perspective in government management, one that would
match the comprehensive outlook applied in economic planning,
while at same time ensuring that the service is staffed with the right
caliber of personnel.
Table 1: Civil Service Reforms in Nigeria 1934-1994
S/No. Name of Commission/Committee Year 1. Hunt’s Commission 1934 2. Harragin Commission 1945 3. Foot Commission 1948
4. Gorsuch Commission 1951 5. Phillipson – Adebo Commission 1954 6. Mbanefo Commission 1959 7. Hewn Committee 1959 8. Morgan Commission 1963
9. Eldwood Commission 1966 10. Adebo Commission 1971
11. Udoji Commission 1972 12. Dotun Philips Reforms 1985 13. Decree No. 43 1988 14. Ayida Review Panel 1994
Source: Salisu 2001 and Adegoroye 2006
35
In spite of all the efforts at reforms, the problems or
accusations remain. In the words of Salisu (2001), ‘in spite of efforts
at reforms, the service remains inefficient and incapable of reforming
itself, let alone the rest of the economy. Corruption has become an
endemic feature of public sector activities, with the oil booms and
busts distorting the incentive structures of civil servants and other
agents in the economy’.
(b) Contending issues in performance management of Enugu State Civil Service
Nigerian civil service is fraught with the following problems
and discontents: lack of measurable objectives; inadequate
evaluations; mismanagement of time; inadequate facilities;
disorganization; personnel mismanagement; and over centralization.
These internal weaknesses led many ‘public organizations to: define
their output as money disbursed rather than service delivered,
produce many low-return observable outputs (glossy reports and
frameworks) and few high-return less observable activities like ex-
post evaluation, engage in obfuscation, spin control, and official
amnesia exhibiting little learning from the past, and putting
enormous demands on scarce administrative and technical skills’
(Easterly, 2002:223). This however, culminates in marring of
government’s laudable policies vis-à-vis poor implementation
strategies (i.e. bureaucratic procedures) adopted by the civil service,
effecting unworkable solutions, putting obstacles in the way of
policies formulated by the political officials (Okotoni, 1996).
The corrupt practices of heads of ministries, establishments
and agencies had eaten deep into the fabrics of the Enugu State Civil
36
Services. Furthermore, the neglect of the political class of the plights
of the Civil Servants has greatly contributed to the poor performance
of the workers. Also to stem the tide of corruption in the Civil
Service, there was a grave need to realign the incentive structure. It
is found that there is a significant correlation between pay incentive
and corruption in the Civil Service (Salisu, 2001). The Civil Servants
are the least paid workers in the country compared to employee in
private organizations like banks and other government and
Parastatals like Ports Authority etc. Other problems are neglect of
merit principle in favour of other considerations in the recruitment and
selection process. However, it is necessary if not imperative for
the government to adequately remunerate the civil servants for
efficient, effective performance of their duties.
For its importance, performance as it is applied here has
become everyday word since the Second World War. Governments,
politicians, academics and economists have all stressed the
importance of productivity because of its relationship with general
economic health of a nation. Corporate management globally are
regarded as a main indicator of efficiency when comparisons are
made with competitors in world markets. Governments stress the
relationship between productivity, the standard of living, inflation
and economic growth (Craig, 1972).
37
Nwachukwu (2007:29), holds that performance of an employee
is seen as the relationship between units of labour input and units
of output. Performance is reaching the highest level of performance
with the least expenditure of resources. Nwachukwu holds a good
definition of performance as one that includes three major elements
– output, resources committed (input) and time. This led him to put
up a definition that forms a combination of the elements mentioned
thus: “performance is the output resulting from a given resources
input at a given time”. He then puts performance equationally as:
ePerformancInput ofCost
Output of Value =
One idea is basic that performance is at the heart of every
organization’s progress and there is no doubt that motivation is the
crux of good performance. Being so, motivation, just like productivity
itself is extremely important to organization and as such should be
worked for. Of course, Nwachukwu (2007: 50) has always
maintained that performance is a function of ability and will, which
means that people work better when the environment, working
methods and the equipment have been designed to help them. If we
add to this the natural motivation to do a good job-of-work for an
appropriate reward, we can confidently anticipate improved
productivity. The organization has some roles to play on an employee
to help boost the employee’s productivity. Of course, the job of a
38
manager in the workplace is to get things done through employees.
To do this, the manager should be able to motivate employees. But
that is easier said than done.
According to French (1978) described the dynamics of
motivating people through training programme in the following
words:
In order to change behaviour in the direction of greater contribution to the attainment of organizational goals, the individual must perceive the new, expected behaviour serving to fulfill needs, or at least as not leading to deprivation of fulfillment … supplying goals that fulfill needs and are within reasonable reach of employees is very important in providing motivation as it relates to training and development. In other words, the environment must be conducive to change in behaviour.
The implication of the training – motivation correlation for
organizations sponsoring their employees on training programmes is
perhaps more critical for the civil service, particularly in developing
countries where government is the largest employer of labour and
the problems of motivating the workforce is rather daunting.
The main tools in the manager’s kit bag for motivating the
team are:
� Approval, praise and recognition. As Mullins (2007: 249) will
caution:
39
If members of your staff do something good, tell them. And then tell them again, and again. Keep it up. Put it in writing. Send them a memo – something they can keep. Put in the company’s Newsletter. Add a note to their file. Whatever, but make it widely known that they did well. This is a quick and cheap method of praising and motivating your team and let everyone know you are monitoring, praising and motivating them.
� Trust, respect and high expectations.
� Loyalty given that it may be received.
� Removing organizational barriers that stand in the way of
individual and group performance (smooth business processes,
systems, methods and resources – see team building
programme).
� Job enrichment
� Good communications
� Financial incentives. (See Appendix 2)
The authors just like Nwachukwu (2007) and Milkovich and
Boudreau (2004) maintained that three basic issues inform
employee performance. They put up a diagrammatical expression of
ability, motivation and job content and methods as the three basic
issues that inform employee performance. That work performance
may be improved by developing the ability of employees to do their
jobs better. This necessitates, in the first instance, finding and
allocating the most suitable people to do the work. It is the purpose
of an organization’s recruitment, selection and personnel allocation
40
procedures to do these tasks. Improving the knowledge and skills of
those already employed are the purpose of its training and
development by altering the content of the job, the methods
employed in doing the job and the environment of the job.
• The Enugu State civil service uses the Annual
Performance Evaluation Report (APER) system in
evaluating the members of her staff for promotions. It is
important to state that these staff annual reviews are
generally perceived as a difficult and painful process by
both managers and employees. There are typically no
objectives which are set in appraisal systems; there is no
link to strategic or operational outcomes. Where there is
a well structured performance management system that
is effectively communicated, both the employee and
manager enter the process with better levels of
confidence as there are “rules” that clearly stipulated
what is being assessed and how. Employees are assessed
on achievement of objectives that had been clearly
identified and agreed to. Managers have a better
framework to assess an employee’s performance as they
are familiar with the criteria to assess the employee. The
outcome is that both individuals have an informed
discussion and focus on achievement of both personal
41
and business objectives, not on issues that are
irrelevant. For job holders who are performing below
their peers, intensive support, training and coaching
should be employed to aid such workers. This might
include:
• Coaching to enhance performance further.
• Setting more stretching goals.
• Tailoring development to build confidence and experience.
• Plugging competency gaps.
• Looking at ways to re-energize in the current role, considering whether they have been in the role too long
Lunger (2006: 8), argued further that modern performance
management must originate from organizational development
strategies, goals and values, the coordination functions of
performance, the satisfaction of internal and external customers, the
focus on group and team performance, the emphasis of cross-sector
and cross-function appraisal, the performance monitoring and
development, the evolution of performance measurement with time
and sustained growth.
42
Review
Work Effort
start of year End of year
Appraisal
Face to Face Planning
Set Objectives
Set Development Plan Interim Final
Competency Review Review Review
Work Effort Work Effort
Start of year End of year
Performance Diary Notes
Performance Management
Figure 1: Graphic view of the difference between Performance Appraisal and Management
Sources: www.peoplestreme.com
The above figure showed that organizations manage their staff
performance appraisal to ensure consistent performance
improvement. Annual Appraisal which starts from the first month of
the year and the review comes up at the end of the year where the
boss sits in judgment of the subordinate to assess him/her at the
43
end of the year. The end of year appraisal of workers is subjective
hence they do not ensure consistent performance improvement.
The performance management evaluation is conducted as
objectively as possible and in more scientific way because the
system that assesses the job rather than the individual. The
performance management is used to ensure that employees’
activities and outcomes are congruent with the organization’s
objectives and entails specifying those activities and outcomes that
will result in the firm successfully implementing the strategy (Noe et
al., 2000: 5).
Some writers such as Cooper & Argyris (1998), had
introduced ‘Forced Ranking’ as a performance intervention, which
can be defined as an evaluation method of forced distribution, where
managers are required to distribute ratings for those being
evaluated, into a pre-specified performance distribution ranking.
According to Meisler (2003:2), commenting on Forced Ranking
asserted:
It is a workforce-management tool based on the premise that in order to develop
and thrive, a corporation must identify its best and worst performers, then nurture the former and rehabilitate and/or discard the latter. It is an elixir that in these slow- growth times has proved irresistible to scores of desperate corporate chieftains – but indigestible to a good many employees.
44
In recent years, organizations have begun the admittedly tough
minded approach of ranking associates against each other. It can be
argued that approach is dictated to force managers to make the
performance evaluation process truly reflect how each team member
is performing, relative to others, with the ultimate goal being more
productive employees, who perform at a high level to make service,
revenue, and growth goals attainable. “Forced ranking flushes…
laggards into the open” (Morrison and Keefe, 2003:3). The less
difficult path of not using forced ranking, or some type of
comparison of relative contribution, has been perceived as
counterproductive to business success, because those staffers at the
top are not commensurately rewarded, and therefore at risk for
being retained. Conversely, those ranked at the bottom have not
been identified, therefore, had not been coached, nor improved, or
terminated.
Jack Welch, retired Chief Executive officer of General Electric
(GE) in America, is most often associated with forced ranking. He
argued that since General Electric used this performance tool to
eliminate the bottom ten percent of performers each year. Dick
Grote, president of Grote consulting and a performance appraisal
expert, contended that “managers would rather have a tooth pulled
out than have a performance conservation with a subordinate. He
contended that dealing with the issues of poor performers is
45
probably the most difficult job that anybody with supervisory
responsibility has” (Levinson, 2003:13). It can be argued the general
lenience with poor performers, which translates to an unfair and
bigger burden for good performers is the primary reason so many
companies have turned to forced ranking as a performance
intervention.
There are several ways to administer forced ranking, as long as
associates’ performances are essentially ranked against one another,
as indicated in Table 2.
Table 2: Types of Forced Ranking and how it works.
Forced Ranking
How it works (requirements)
Results
Bell Curve
10% are top performers, exceeding expectations.
80% are backbone, meeting expectations. 10% are not meeting expectations.
Receive highest compensation increases: in line for advancement. Receive moderate compensation increases Receives little or no compensation; coached for improvement; subject to termination.
Totem Pole One individual is at the very top, someone else is at the very bottom and everyone else is ranked consecutively in between, based on performance.
Similar results as above.
Quartiles Associates are ranked in four equal quartiles. Similar results as above
Source: Charlotte A. Donaldson, Performance Technologist, Bank of America. The above table shows that the ‘Forced Ranking’ helps a corporation
to identify its best and worst performers, then nurture the former
46
and rehabilitate and/or discard the latter. Forced ranking has its
detractors. This technique of forcing managers to delineate
performance has been called brutal and Darwinian (Morrison &
Keefe, 2003). One common criticism is that it pits associates against
each other, instead of fostering a collaborative work environment. On
those occasions when managers lead truly high-performing teams,
someone still must be ranked low, despite meeting performance plan
goals. Nevertheless, to overcome the negative perception of forced
ranking, writers contended that honest communication, thoughtful
performance appraisals, and admittedly tough ranking seem to be
key to the success of this performance intervention.
An effective performance management process established the
ground work for excellence by:
� Linking individual employee objectives with the organization’s mission and strategic plans. The employee has a clear concept on how he contributes to the achievement of the overall business objective.
� Focusing on setting clear performance objectives and expectations through the use of results, actions and behaviours.
� Defining clear development plans as part of the process and � Conducting regular discussions throughout the performance
cycle which include such things as coaching, monitoring, feedback and assessment. The performance management at the individual level is an on-
going interactive process between appraisee and appraiser for
effective measurement of performance.
47
Figure: 2: Performance Management Cycle.
planning
reviewing performing
Monitoring
Source: Armstrong (2008: 17)
Figure 2 above which is on performance management cycle is a
performance measurement technique which is essential part and
assuming performance management as an entire process of
management; this procedure includes the following four steps:
(1) planning: deciding what to do and how to do it; (2) performing:
bringing the planned operations into action; (3) monitoring:
inspecting the work completed or in progress, measuring the results
and (4) reviewing: evaluating the finished work, and if the overall
performance is far below the original plan, the plans and operations
procedures will be fixed. The above four steps are closely connected
Economy
equity efficiency
effectiveness
48
to one other from planning to reviewing and have become essential
components in developing the performance management cycle.
This is done by the apex management of the organization. It is
then translated to all the functional sections of the organization.
This if effectively done would lead to re-defining each job positions
and duties and ensuring that each employee is given what he can do
best. Anyone who cannot fit in anywhere is either retained for new
job opportunity or shown the way out (Armstrong, 2008: 15-16;
Cable, 2005: 6).
In his own emphasis on training, Onah (2003: 122) stated that
“in order to maximize the productivity and efficiency of any
organization, every executive manager or supervisor in a public or
private enterprise has the responsibility and indeed the binding duty
to ensure the development of man and woman who have requisite
knowledge and expertise”. Onah (2003: 122) citing the work of
Akpan (1979: 13) asserts:
An untrained man in the modern world may be a menace to the society. He is a quack; he knows only the laws of things; he has no idea of (their) why. Hence, if there is any trouble anywhere – breakdown in a machine or a mistake in a ledger all he can do is to fumble and patch up trouble anyhow, leading to a more serious breakdown or greater confusion. Really there is no place for the untrained worker or even the intelligent amateurs in these days of specialized work.
It is certain that an unmotivated employee is a threat to the
achievement of organizational objectives.
49
It is important to state: those non-materialistic sources of
motivation may also be powerful to motivate workers especially in
the public sector. They may be mobilized through individual or
organizational level incentives. As for the latter, many contemporary
approaches to managing for results subscribe to the view that a
fundamental tool for improving agency performance is “the explicit
specification of objectives, the measurement of performance against
those objectives, and the setting of performance targets” (Paul and
Robinson, 2997: 330). Some human resource managers even argue
that workers should be given a salary that is sufficient (to be
considered as fair) – but above a certain level, motivation for
performance should be induced by other types of incentives. As
Kohn (1998) puts it, “pay people well. Pay people fairly. And then do
everything in your power to take people’s minds off of money.” One
can also consider paying staff on the basis of a subjective
performance assessment – that is, ratings by peers or supervisors
that are intended to capture aspects of the workers’ contribution to
the agency which are hard to measure. This is for instance, the case
in Singapore, where the civil service introduced in 1983 a Potential
Appraisal System (borrowed from a private petroleum company) to
appraise senior civil servants for promotion and development
process (Vallance, 1999). The use of bonuses based on performance
appraisal (together with other incentives) is now more and more
50
used in Singapore. In Singapore, civil service salaries are
commensurate with those offered by the private sector. Significant
social prestige attaches to employment in the higher ranks of the
civil service and senior staff is richly rewarded for its efforts, with
civil service salaries being amongst the highest in the world. Perhaps
consequence, corruption among civil servants occurs infrequently.
The Enugu State Annual Performance Evaluation Report (APER) is
done at the end of every year which is scored by the head of
department or unit of such a worker.
According to letter Ref. No. ENS/SSG/ECA/CON/164/ S.9/16
dated 30th November 2010, the Permanent Secretary on behalf of the
Secretary to the State Government called for a workshop. The one-
day meeting was on Enugu State government structure, organization
and function: Mandate and structure of public service documents.
They came out with the following documents to resolve some of the
contentious issues.
The overall functions of the Head of State Civil Service include:
(a) Public service policy, management and reforms.
(b) Providing leadership and direction to the service, maintaining
high morale, espirit de corps and favourable image of the
service in line with the code of conduct.
(c) Co-ordination of grading in the Civil Service and parastatals.
(d) Personnel policies and practices, including recruitment policy.
51
(e) Salary reviews.
(f) Salaries, wages, allowances, pensions, gratuities, conditions of
service including the implementation and continuous review of
Civil Service rules except appointments, promotions and
discipline.
(g) Staff Negotiation Council and the direction of staff negotiation
generally.
(h) Advising the Governor on the appointment and deployment of
permanent secretaries and Heads of Departments (concurrent
with Secretary to Government).
(i) Management and maintenance of the Human Resources
Information system.
(j) Promotion of good relations between commissioners, political
appointees and Civil Servants.
(k) Liaise with Civil Service commission, Judiciary and Audit
Department.
(l) Management of Government Staff Housing.
(m) Organization of Annual Civil Service week.
(n) Enugu State Gazette actions.
(o) Allocation of office accommodation and staff quarters
(concurrent with Secretary to the Government).
52
According to Federal Republic of Nigeria Public Service Rules
(2010) Chapter 13 on Allowances gave array of the following
allowances payable to officers in the federal public service.
(a) Kilometers Allowance
(b) Disengagement Allowance
(c) Hotel Accommodation Allowance
(d) Duty tour Allowance
(e) Transport and Local Running Allowance
(f) Estacode Allowance
(g) Estacode Supplementation Allowance
(h) Warm clothing Allowance
(i) Local Course Allowance
(j) Book Allowance
(k) Projects Allowance
(l) Overtime allowance etc.
Also the Public Service Rules chapter 15 provides for reward
for outstanding work.
No. 150102 states that: The recipient of an award must have
been considered as best on the basis of outstanding performance of
duties and exemplary conduct during the year.
No. 150103 states that each ministry or extra-ministerial office
may make such award to deserving officers annually.
53
No. 150104 states that the award may be in the form of
medals, gifts of cash or kind.
The workers monthly stipend has been engulfed by the hyper-
inflation without any other prerequisite to assist him. When you
officially approach him for assistance he looks morose. He is fed up
with the job except that he is yet to get a better alternative. The
future career looks bleak to him. He only retires to fate. This
description of the Nigerian bureaucrat lends credence to Olowu
(1991) who observes that public service is being denied of those very
things that would enable it fulfill its mission.
According to Obikeze and Obi (2004: 24), employees in any
organization are human beings and not objects that can be used
today and scrapped tomorrow. Therefore, they should be cultivated
and developed in order to maximize their performance. It is expected
that adequate and comprehensive employee service/welfare
programmes such as health service programme (health Insurance
policy), on-the-job health measures, safety and accident prevention
programmes, work hours/leave programmes which includes annual
leave, sick leave, maternity leave (for women) etc. should be
developed.
The origin, structure and performance of the contemporary
Civil Service in Nigeria are traceable to colonial administrative
formation. Civil Service in Nigeria has its origins in organizations
established by the British in colonial times. The Nigerian Civil
54
Service is a body of government employees entrusted with the
administration of the country, and mandated to carry out the
policies of the government of the day. In other words, it is the body
of civilian employees of any level of government, not subject to
political appointment and removal, normally hired and promoted
largely on the basis of competitive examination (Bade, 2009).
The Civil Service has been undergoing gradual and systematic
reforms and restructuring since May 29, 1999 after decades of
military rule. However, the Civil Service is still considered stagnant
and inefficient, and the attempts made in the past by panels and
commissions have had little effect on the performance management
of the Civil Servants.
On 15th July, 2000, Nigeria Labour Congress (NLC) Enugu
issued a seven-day ultimatum to government and circulated it to its
members to put all machinery in motion to press home their genuine
demands. They requested the government to implement the new
living wage of N6,500 and all the outstanding demands of the
workers. Negotiation between the State government and labour over
minimum wage started in June 2000. By mid-July 2000, there was
no progress made as both sides stuck to their positions –
government offered N5,500 while labour insisted on N6,500
minimum wage per month. This incidence confirms Salisu’s (2001)
assertion that civil servants are the least paid workers in the country
55
compared to employee in private organizations like banks and other
government parastatals like Ports Authority etc.
The ministries are responsible for various parastatals
(government-owned corporations) such as universities (Education),
National Broadcasting Commission (Information) and Nigerian
National Petroleum Corporation (Petroleum). Other parastatals are
the responsibility of the office of the presidency, such as the
Independent Electoral Commission, the Economic and Financial
Crimes Commission (EFCC) and the Federal Civil Service
Commission (Okoronkwo, 2008). The challenges that lie ahead are to
know whether these reforms that have taken place in Nigeria and if
they promoted sustainable human development.
The Adebo Commission (1970) and the Udoji Commission
(1972) reviewed the structure and orientations of the Civil Service to
make it a more efficient instrument for promoting sustainable
human development. Idris affirms that although these commissions
recommended ways of rationalizing the Civil Service, the greatest
problems of the service remained inefficiency and red tapism (Idris,
2009). The Civil Service by 1990 had changed dramatically. It had
been politicized to the extent that most top officials openly supported
the government of the day. The introduction of the quota system of
recruitment and promotion, adherence to the federal-character
principle, and the constant interference of the government in the
56
day-to-day operation of the Civil Service especially through frequent
changes in top officials and massive purges meant that political
factors rather than merit alone played a major role in the Civil
Service (Odeniga, 2007).
Studies have shown that appropriate rewards (Gomez-Mejia
and Balkin, 1992; Heneman and Judge, 2003), performance pay
(Griffeth et al., 2002), creation of social community in the workplace
that enhances social ties such as encouraging employee marriages
and siblings employment (Ayagi, 2001), job security (Charted
Institute of Personnel and Development [CIPD], 2006), high level of
wage rate and organization’s image (Taplin et al., 2003) and
participative decision and information sharing (Jike, 2003; Riordan
et al., 2005) serve as a catalyst in retaining employees for
organizational performance.
The use of sectional balancing (triangular equilibrium) system
in administration did affect the State Civil Service negatively. The
Enugu North Constituency (Nsukka) was marginalized in the helm of
affairs.
According to Ngwoke (2001: 8), the trophy for the smart
political move he suggested should go to Chief Jim Nwobodo who
was then serving as the Minister of Sports in Abacha’s government.
Further structural modifications of the State were affected under the
Chimaroke Nnamani’s administration in a manner that defies logic,
57
common sense, and elementary justice. A little illustration here will
suffice. In an earlier work, Ngwoke (2004: 46) commented on this
issue as follows:
The old Nkanu (pop. 209,444) was broken into eight Councils while Nsukka (pop. 220,441) got only three Councils, Uzo-Uwani (pop. 99,112) got four Councils, Oji River (pop. 86, 361) has three Councils, and Old Awgu (pop. 232,245) now has a total of seven Councils. There ought to be some logic to this process but one is at a loss to find it. All one can see is the capricious will of one man: Dr. Chimaroke Nnamani.
So how does one evaluate Governor Sullivan Chime? On what
criterion should he be assessed? In my view, the basic yardstick is
the lowest common denominator: justice, the basic, fundamental
virtue of society. There is a constitutional requirement for the
Governor or President or even Chairman of Local Council to be fair
to all the component units of the State, Country or Council Area.
That is section 14 of the 1999 Constitution, Section 14 (4) asserted:
The composition of the Government of a State, or local government council, or any of the agencies of such Government or Council, and the conduct of the affairs of the Government or Council or its agencies shall be carried out in such a manner as to recognize the diversity of the people within its area of authority and the need to promote a sense of belonging and loyalty among the peoples of the Federation.
The present Enugu State governor had not fared better in
abiding by this constitutional provision. For instance, we have about
58
21 judges in Enugu State. Nsukka has only two while Enugu
clinched 14 judges and the scenario spread over State ministries,
parastatals, institutions and agencies and it is not healthy for high
performance and reward management.
(c) Enhancement of Performance Management System in Enugu State Civil Service
Performance management is a normal process of management
which involves all members of the organization as partners so as to
get better results and improve service delivery.
� The primary aim of performance management system in
Ministry/Department is to enhance performance at all levels
by focusing on key areas of activity/services to be delivered
which are identified through strategic planning processes.
� It seeks to establish clear links between organizational
development, the delivery of quality services and the
development of employees at work.
� It also strives to create a common bond of ownership among all
employees as well as an environment where all individuals are
developed, motivated and inspired to deliver a quality
performance (http/civilservice.gov.mu) Ben (2008: 80).
The proper implementation of performance management
system helps to:
59
− Align Ministry/Department, Section/Unit and individual’s
goals.
− Identify key priority areas for judicious allocation of scarce
resources.
− Bring about improvement in processes and systems in
Ministry/Department.
− Provide a common sense of direction to all staff.
− Support leadership, motivating and team-building processes.
− Facilitate change management initiatives.
− Recognize talents and release potential.
− Ensure effective service delivery to meet expectations of both
internal and external customers.
Performance Management System is purposeful with the following purposes.
� The primary aim of Performance Management System in Ministry/Department is to enhance performance at all levels by focusing on key areas of activity/services to be delivered which are identified through strategic planning processes.
� It seeks to establish clear links between organizational development, the delivery of quality services and the development of employees at work.
� It also seeks to create a common bond of ownerships among all employees as well as an environment where all individuals are developed, motivated and inspired to deliver a quality performance. (See Figure 3)
60
Figure 3: Performance Management System Model
PM CYCLE
Source: (Ministry of Civil Service and Administrative Reforms) Mauritius} Govt. Printing Dept. March 2013
The above diagram showed that at the organizational level, the
supervising officer determines the strategic priorities, and the
Overall Key Result Areas and performance indicators are then
assigned to each section/unit. At the section/unit level, the head
develops a section/unit plan based on key result areas as assigned
by the supervising officer. At the individual level, the appraisee
discusses and enters into a performance agreement with appraiser.
Government programme objectives, priorities and
mandates
Organisation Strategic Plan
Section/Unit Annual Plan
Individual work Plan
Final Review
� Organisation
� Section
� Individual
Mid –term Review � Organisation � Section � Individual
61
This should be aligned to section/unit annual plan. Performance at
organization, section/unit and individual levels is monitored
throughout the cycle and appropriate action is taken accordingly.
According to William H. (2013: 6), performance management
involves performance planning at the beginning of the annual
business cycle to provide individuals with direction and stretching
objectives; performance review throughout the business cycle to
ensure objectives remain relevant and good progress is being made,
and formal performance assessment at both mid and end-year
points. Managers should also be holding regular performance
discussions throughout this year enabling performance progress to
be informally assessed on a continuous basis.
Performance planning is the foundation stone for effective
performance reviews and assessments. Only with good quality,
agreed objectives can the management of performance be fully
effective. It is vital that managers and their workers have agreement
on what to be achieved early in the year to ensure that each
individual had a clear line of what he or she is expected to
accomplish for the achievement of organizational goals.
Performance management at individual level provides a
structured, consistent and transparent evaluation system. It also
reinforces the feedback mechanism between appraiser and one
appraised. It generates information for sound decision-making.
62
A clear observation and study of the environment in which the
civil service operate in Enugu State, one could see characteristics of
the prismatic society. It was observed that the distinguishing
characteristics of the “Sala” bureaucracy accounts for its dismal
weakness in the inter-penetration of the elements of tradition and
modernity. In plain language this tradition according to Okpata
(2004) involves communal bonds, based upon diffuse emotional
identification and attachment among individuals of which the family
and the neighborhood group may serve as an example.
According to Okpata (2004), there existed weak bureaucracy
indices in Enugu State public service, such as weaken bureaucracy,
lack of patriotism, corruption, ghost workers syndrome, appointment
of unqualified and inexperienced officials, bribery and lack of proper
maintenance of men and material and political intrusion.
In the National Performance Review (NPB) version of the New
Public Management, ethics amounted to achieving results with a
high degree of customer satisfaction. The National Performance
Review discounted concern with corruption for two reasons. First, it
assumed that the overwhelming numbers of public employees are
good people. According to the National Performance Review (NPR),
People – in government or out – are, for the most part, neither crooked nor stupid. Most people want to do the right thing, so long as the right thing makes sense. Perhaps the most important thing about the reinvention initiative, and its regulatory reform work in
63
particular, is that it is based on a new assumption, that people are honest and that if you tell people what needs to be done, and let them get on with doing it, the chances are that it will be done better – and more cheaply – than if you tell them how. Moreover, it values them as human beings.
Treating honest and smart people as though they were crooked
and stupid binds them in pointless and harmful red tape. As the
National Performance Review put it,
This lack of trust in its own employees is one reason why doing almost anything in the government has always required a couple of dozen signatures; to be sure no one was cheating the taxpayer. Of course the process sometimes cost more than what was protected, but at least no one could be blamed if something went wrong.
Second, given that most are good, the cost of ferreting out and
deterring corruption is too high in terms of the red tape such efforts
create. In the National Performance Review’s words:
Innovation, by its nature, requires deviation. Unfortunately, faced with so many controls, many employees have simply given up. They do everything by the book – whether it makes sense or not. They fill out forms that should never have been created, follow rules that should never have been imposed, and prepare reports that serve no purpose – and are often never even read. In the name of controlling waste, we have created paralyzing inefficiency.
In short, the New Performance Review sought to replace many
of the accountability and ethics controls imposed on public
employees with a culture of trust.
64
The essential ingredient in bringing about so great a people-led change – indeed, the essential ingredient of self-government – trusts the people involved. In this case, that means government employees and the people they serve …
When we are not trusted, when nothing we say or do seem to make a difference, we feel powerless. Elections alone do not restore that power. The power that matters in a self-governing democracy is the power we can exercise “over-the-counter”, on a daily basis, whenever we interact with our government, whenever we seek to make our needs known. Someone must be listening. Someone must act.
This approach stands in remarkable contrast to the checks
and balances so carefully crafted by the constitution’s framers – as
the National Performance Review freely admitted.
The American Society for Public Administration (ASPA) exists
to advance the science, processes, and art of public administration.
The society affirms its responsibility to develop the spirit of
professionalism within its membership, and to increase public
awareness of ethical principles in public service by its example. To
this end, we, the members of the society, commit ourselves to the
following principles:
I. Serve the public interest; Serve the public, beyond serving
oneself. ASPA members are committed to:
(1) Exercise discretion authority to promote the public interest.
65
(2) Oppose all forms of discrimination and harassment, and
promote affirmative action.
(3) Recognize and support the public’s right to know the public’s
business.
(4) Involve citizens in policy decision-making.
(5) Exercise compassion, benevolence, fairness, and optimism.
(6) Respond to the public in ways that are complete, clear, and
easy to understand.
(7) Assist citizens in their dealings with government.
(8) Be prepared to make decisions that may not be popular.
II. Respect the Constitution and the Law.
Respect, support, and study of government constitutions and
laws that define responsibilities of public agencies, employees, and
all citizens. ASPA members are committed to:
(1) Understand and apply legislation and regulations relevant to
their professional role.
(2) Work to improve and change laws and policies that are
counter- productive or obsolete.
(3) Eliminate unlawful discrimination.
(4) Prevent all forms of mismanagement of public funds by
establishing and maintaining strong fiscal and management
controls, and by supporting audits and investigative activities.
(5) Respect and protect privileged information.
66
(6) Encourage and facilitate legitimate dissent activities in
government and protect the whistle blowing rights of public
employees.
(7) Promote constitution principles of equality, fairness,
representativeness, responsiveness and due process in
protecting citizens’ rights.
III. Demonstrate personal Integrity. Demonstrate the highest
standards in all activities to inspire public confidence and
trust in public service. ASPA members are committed to: -
(1) Maintain truthfulness and honesty and to not compromise
them for advancement, honour, or personal gain.
(2) Ensure that others receive credit for their work and
contributions.
(3) Zealously guard against conflict of interest or its appearance,
e.g., nepotism, improper outside employment, misuse of public
resources, or the acceptance of gifts.
(4) Respect superiors, subordinates, colleagues, and the public.
(5) Take responsibility for their own errors.
(6) Conduct official acts without partisanship.
IV. Promote Ethical Organizations. Strengthen organizational
capabilities to apply ethics, efficiency, and effectiveness in
serving the public. ASPA members are committed to:
67
(1) Enhance organizational capacity or open communication,
creativity, and dedication.
(2) Subordinate institutional loyalties to the public good.
(3) Establish procedures that promote ethical behaviour and hold
individuals and organizations accountable for their conduct.
(4) Provide organization members with an administrative means
for dissent, assurance of due process, and safeguards against
reprisal.
(5) Promote merit principles that protect against arbitrary and
capricious actions.
(6) Promote organizational accountability through appropriate
controls and procedures.
(7) Encourage organization to adopt, distribute, and periodically
review a code of ethics as a living document.
V. Strive for professional Excellence. Strengthen individual
capabilities and encourage the professional development of
others. ASPA members are committed to:
(1) Provide support and encouragement to upgrade competence.
(2) Accept as a personal duty the responsibility to keep up to date
on emerging issues and potential problems.
(3) Encourage others, throughout their careers, to participate in
professional activities and associations.
68
(4) Allocate time to meet with students and provide a bridge
between classroom studies and the realities of public service.
Enforcement of the Code of Ethics shall be conducted in
accordance with Article 1, Section 4 of American Society for Public
Administration’s (ASPA’s) Byelaws.
In 1981 the American Society for Public Administration’s
National Council adopted a set of moral principles. Three years later
in 1984, the Council approved a Code of Ethics for ASPA members.
In 1984 the Code was revised.
(Source: American Society for Public Administration, 1120 G. Street MW, Suite 700, Washington, DC 20005-3885. Available online at http://www.aspanet.org/scriptcontent/ index-codeofethics.cfm.)
The American Society for Public Administration’s ethical code
was broad enough to encompass each of the perspectives towards
public administration. What is obtained in Enugu State SERVICOM
and Performance improvement Bureau was an improvement if well
implemented. There was no time to be wasted, we had better started
now.
(d) Barriers to Performance Management of Civil Service in Enugu State
Barriers to performance management can be conceptualized as
being both personal and system based. In the personal realm, socio-
cultural, attitudinal, experiential and perhaps metabolic phenomena
69
contribute to one’s motivation and performance or the lack of it.
(Pearson 199:99).
Among systems, models, which relate to traditions, budgetary
issues, personality of the Chief Executive Officer, organizational
climate and management structure are foremost. Another barrier is
security of the status quo. Change can be threatening to system
and to individuals within the systems. The Chief Executive Officer
can promote or inhibit constructive change. Executives could make
change legitimate and valid. Thus, those executives who have a
commitment to change the status quo will expand the needed effort
to effect change.
According Ngwoke (2010: 23) quoting Pope Leo XIII, employers
have an obligation to pay just wages to their employees.
Let workers and employers make any bargain they like, and in particular agree freely about wages, nevertheless, there underlies a requirement of natural justice higher and older than any bargain voluntarily struck: the wage ought not to be in any way insufficient for the bodily needs of a temperate and well behaved worker. If, having no alternative and fearing a worse evil, a workman is forced to accept harder conditions imposed by the employer on contractor, he is the victim of violence against which justice cries out.
A bureaucratic roadblock is another barrier to performance
management. The problem of red tapes associated with the
bureaucracy is one which seems highly over flogged. However, the
70
frustrations which people meet every day in their interaction with
public bureaucracies are such that still call for emphasis on this
issue. Apart from the fact that many third world bureaucracies are
indolent and inefficient (like in Nigeria), all over the world, the
adherence to rules and regulations has made the bureaucracy to be
noted for its slow nature. Schaefer (2002:206), believe that
adherence to rule is quite in order but he argues that at times it over
shadows the large goals of an organization and becomes
dysfunctional. If blindly applied, they will no longer serve as a means
to achieving an objective but instead will become important (and
perhaps too important) in their own right.
Bureaucracy is inconsistent with democratic governance.
According to Onah (2000), bureaucracy is an anti thesis of
democracy. Although in literature, bureaucracy is efficiency, but if it
is compared with democracy, it is clearly seen that both principles
contradicts. Democracy is a government of compromise,
understanding and respect of all. Most of the time, people are
manipulated by those whom they elected into positions to rule, and
this situation has been described as “the illusion of democracy”
democracy involves supremacy of the people, supremacy of the
people in government. Obi and Chukwuemeka (2006: 112) observed
that it is obvious that inefficiency of civil service are discredits to the
democratic government in Enugu State are caused by the strict
adherence to the bureaucratic rules by the civil service thus, leading
to poor and belated policy making and subsequently Methuselah age
71
to be implemented all in the name of due process, while the
populace which consumes the outputs are in jeopardous state.
Non-performance behaviour of employees is absenteeism and
turnover. Workers who regularly absent themselves from their work
schedules are viewed as serious offenders. It attracts surcharge of
the officer’s salary to the extent of absence recorded for the offender.
No daily plan is another barrier to performance management.
Planning saves time and energy. It gives direction, assists with
decision-making and increases productivity. For every one minute
spent in planning, the time required to complete an activity is
reduced by three to four minutes (Clark and Clark, 1992: 28).
Factors affecting the performance of individual workers have
been described as a series of concentric circles. The model as
Pearson (1991: 99) established it as shown in figure 4.
Figure. 4: Performance: Concentric Model
Environment (Economy, Society)
Organization (Methods, Systems)
Work Group (Norms)
Individual Performance
72
Source: Roland Pearson (1991): The Human resource; Managing
people and work in the 1990’s.
Figure four (4) showed that at the centre of the model are the
workers themselves who are the traditional heroes of the productive
drama-personal performance are the subjects of cajolery, threats or
incentive schemes. The output of the individual is determined at this
level by personal motivation and skills. He noted that workers are
often unaware of the full range of their skills and the work for which
they are best fitted. He concluded, however, that the allocations of
workers to particular type of work are the responsibilities of
management – job analysis.
According to Performance Review Process, the impact of a
poorly structured performance management process is enormous.
They argued that if individual goals are not aligned with business
strategy, then time and resources are wasted. Low employee
engagement levels may mean that individuals are not performing at
their best. Also inconsistent evaluation criteria and rewards can
lead to mistrust, lower productivity and higher attrition. Levinson
(2003:13) argued that general lenience with poor performers, which
translates to unfair and bigger burden for good performers, is the
primary reason so many companies have turned to: forced ranking
as a performance intervention. If top performers see no
differentiation in performance ratings, opportunities and
compensation from underperformers, morale can suffer. Lack of
documentation, visibility, and accountability can negatively affect
stakeholders who are demanding more and transparence. If
73
accurate performance information is unavailable or difficult to
access, training and development decisions along with project
assignment decisions may not be made in the company’s or the
individual’s best interest. Most importantly, if management does not
understand the importance and value of the performance
management process, it can lead to consistently late or incomplete
appraisals, mistrust, avoidance of performance discussions, and
lack of honest performance-related discussions. Schaefer (2002:206)
agreed with the above assertions when he argued that adherence to
rules is quite in order but he argues that at times it overshadows the
large goals of an organization and becomes dysfunctional. If
performance management process is blindly applied, they will no
longer serve as a means to achieving an objective but instead will
become important (and perhaps too important) in their own right.
In 2003, Chief Vincent Azie was appointed as Acting Auditor
General of the Nigerian Federation for six months; he audited the
annual accounts of government bodies. He reported that most of the
accounts audited in 2002 were inaccurate and showed some
irregularities in mot audited institutions and federal bodies. His
report of 2003 showed that there was over-invoicing, non retirement
of cash advances, lack of audit inspection, payment for jobs not
done, double-debiting, contract inflation, lack of receipts backup
purchases made, brazen violation of financial regulations, release of
74
money without the approving authorities involved etc. The report
indicted all federal ministries for gross financial indiscipline and lack
of regards for laid down financial regulations (Azie 2003) sees Table
3.
Table 3: Ministries indicted by Vincent Azie (2003) Panel during his Audit of Nigerian Federal Ministries. S/No. Ministries indicted
1. Ministry of Works
2. Ministry of Transport
3. Ministry of Defense
4. Ministry of Education
5. Federal Ministry of Finance
6. Ministry of Internal Affairs
7. Ministry of Police Affairs
8. Ministry of Power and Steel
9. Ministry of Agriculture and Rural Development
10. Federal Civil Service Commission
11. Ministry of Water Resources
12. Ministry of Information and National Orientation
13. Ministry of Environment
14. Federal Ministry of Works and Housing
15. Federal Ministry of Water Resources
Source: Report of the Auditor General for the Federation (2001).
75
The above table shows the endemic nature under which
Nigerian public service found itself. For decades civil service has
mainly served the interests of bureaucrats and those engaged in the
accumulation of public resources for private gains. Despite the
increasing reported cases of corruption in the civil service, sanctions
are not effectively implemented. As a result, civil servants often are
not punished for offences such as misappropriation or misuse of
public funds.
(e) Remedies to the Challenges of Performance Management of Civil Service, Enugu State.
The push to reform the Civil Service of many countries and
organizations, Enugu State was precipitated by the realization that
bureaucracies are slow to react to the changing demands of
managerial, employee and customer needs. Condrey and Battaglio
(2007) identified certain factors that had impacted on public
organizations in recent years as an aging workforce, shrinking staff
resources, strategies that strive to achieve merit-based pay and
increasing service-delivery expectations. These elements have
produced concrete policy changes or what might be termed reforms
in the push to develop market-based incentives that would apply
private-sector management principles to government services.
According to Abiola (2012: 12) the Governor of Oyo State,
Abiola Adeyemi Ajimobi stated on 11th June, 2012 to his 12 newly
76
appointed Permanent Secretaries that his government has no place
for ‘corrupt civil servants’. Although he has no plans to sack
workers, he, however, re-emphasized that he will sack corrupt Civil
Servants; those stealing, those with fake certificates, those who are
inefficient and nepotism. He promised to reward hard work,
competence and not tolerate indolence under any guise.
Such government principles include decentralizing operations,
empowering employees with decision-making capabilities, and
embracing customer-friendliness (Kearney et al., 2000). Civil Service
Reform requires a commitment to establish a more professional Civil
Service with a stronger emphasis on performance and less
influenced by patrimonialism and ethnic loyalties.
In 1995 workshop on Civil Service reform in Africa, Langseth,
et. al., (1995: 29) observed that:
Civil society is important in reform: an effective civil society is required for an effective reform programme, because the pressure must come from the bottom. But in the absence of an empowered civil society, no pressure will be brought to bear on reforms. How does one break the vicious circle?
Most importantly, pressure from below would have little effect
on government performance without the backing of such internal
mechanisms of accountability prevalent in modern day democracies
(Clarke and Wood, 2001: 75). For sure, public concern about service
quality can have a major influence on government performance.
77
The Udoji commission was set up to correct the failures of the
earlier commissions. The Commission made the following
recommendations:
(1) The adoption of result oriented public service.
(2) The adoption of a unified Civil Service structure
(3) That administration should be transformed into management.
(4) That reward should be related to job content and performance.
(5) That merit should be the criterion for promotion.
(6) That public sector reward should be harmonized with private
sector reward.
(7) The adoption of modern management technique such as PPBS,
MBO and project management; and
(8) That personnel management to be modernized (Miclay, 2007).
The implementation of the recommendations of the report led
to upward review of salaries and wages of workers. Other
innovations include enhanced staff development programmes;
Institutes of administration of some universities were strengthened
to train professional Civil Servants.
Since the restoration of civil democratic rule on May 29, 1999,
the government has adopted some measures to restore the dignity
and glory of the Civil Service and place it in a proper position to
effectively perform its critical role in societal development. These
measures include:
78
(a) De-militarization of the Civil Service by:
(i) Ensuring that the system is guided by the relevant
provisions of the constitution, the Public Service Rules,
the Financial Regulations and circulars; and
(ii) Revisions of Rules, Regulations and procedures in the
civil service in a way that underscores Government
“concern for discipline and proper conduct and practices
by public officers in accordance with … rules … designed
to enhance fairness, accountability and good
governance”.
(b) Re-introduction of the polling system. The new polling system
is a qualitative development over those of pre-1988 Reforms in
that it:
(i) Ensures that officers, whether generalists or specialists,
are posted to where they will maintain and develop their
professional skills, thereby promoting professionalism;
(ii) Enhances a harmonized development and management
of common professional cadres;
(iii) Promotes healthy changes in the manning of ministries,
thereby injecting new ideas and fresh blood into the
system;
(iv) Helps to transfer skills and experience within the service;
79
(v) Broadens the world outlook and vision of Civil Servants
and develops esprit de corps throughout the service;
(vi) Promotes national unity and integration by ensuring that
staff of ministries reflect the ethnic, geographical,
religious and other divides of Nigeria; and
(vii) To correct the distortions in the placement of staff
arising from the 1988 Reforms.
(c) Correction of various distortions introduced by the 1988
Reforms: In this respect, the Government is implementing
most of the recommendations of the Ayida Review Panel on the
Civil Service Reforms. Main Reports but with qualitative
improvements to reflect the new political dispensation and
emerging global changes;
(d) The restoration of the Office of the Head of Civil Service of the
Federation which is helping to:
(i) Provide leadership, direction and favourable image for
the Civil Service;
(ii) Maintain the Civil Service political neutrality and
cohesiveness;
(iii) Promote high morale and esprit de corps amongst Civil
Servants;
(iv) Co-ordinate training policies and programmes;
(v) Improve staff welfare and development;
80
(vi) Manage common establishment matters;
(vii) Foster professionalism; and
(viii) Promote cordial and mutual relationship between the
political officers and Civil Servants.
(e) The institution of centralized coherent and systematic training
throughout the Civil Service to de-militarize the mentality of
Civil Servants, polish their administrative skills and develop
their professionalism. The new innovations in the training
programmes under the new dispensation are that:
(i) The training and retraining of Civil Servants, including
Permanent Secretaries, have been regularized;
(ii) It is now compulsory for all categories of staff to attend
some training programmes;
(iii) Career progression in the Civil Service is now tied to the
attendance of prescribed training courses;
(iv) There is extensive use of on-the-job and in-house
methods of training by ministries to capture, reflect and
address their specific requirements;
(v) Seasoned retired Civil Servants are now engaged, on
contract basis, to train and retrain Civil Servants on
time-tested skills and methods of Civil Service, as well as
share their experiences with serving Civil Servants; and
81
(vi) Training need assessments are undertaken before
training programmes are embarked on and after the
training examinations. This was not the tradition under
military dispensation.
(f) Comprehensive restructuring of the entire system. The
strategies the government has adopted to manage the reform
are:
(i) Separation of the office of the Head of Civil Service of the
Federation from that of the Secretary to Government of
the Federation as provided in the 1999 Constitution;
(ii) Restructuring of the office of the Head of Civil Service of
the Federation into five distinct components in a
mutually connected relationship;
(iii) Civil servant-driven implementation of reforms;
(iv) Return to the strict applications of extant rules and
regulations concerning recruitment and due process in
the conduct of Government business generally;
(v) Streamlining and coordination of intra and inter-
ministerial functions to achieve a common objective;
(vi) Liaison with other public services across the world (and
also multilateral organizations like the Commonwealth,
United Nations Department programmes, World Bank
etc. – (A.S.M. Babura);
82
(vii) Revisiting the structure and functions of Strategic Public
Service Departments such as National Planning
Commission and other professional Department
(Bamidele, 2007).
Despite the Government measures to restore the dignity and
glory of the Civil Service and the 1988 Civil Service Reforms much
has not been achieved. The lofty ideals of efficiency, professionalism,
accountability, and checks and balances, did not achieve its desired
objectives, especially in the area of promoting performance
management which invariably will promote sustainable human
development, which is an irresistible panacea for a more enhanced
and virile economic stability in any state including Enugu State
which is our focus.
Critical Analysis of the Impact of the reforms
These reforms starting from the Morgan Commission of 1963
to the Allision Ayida Panel f 1994, tried quiet a lot at improving the
civil service in Enugu State and these efforts are all geared towards
performance management or New Public Management but by 2005,
it was obvious that a result oriented civil service had not emerged in
Enugu State. The quality of the civil service was hampered by
cultural, structural, institutional and other management defects.
In Enugu State, governance is largely typified by expansion
patronage and authoritarian rule. Poor African countries perform
83
badly, considering the varying degrees they suffer from a number of
pathologies like inefficiency, centralization, fragmentation, and poor
leadership, lack of capacity, patrimonialism, corruption, poor
accountability and legitimacy. According to Ayoade (1988: 107-111),
the need to improve efficiency and accountability in Nigerian civil
service is therefore obvious. Unfortunately there is still uniform
centralized control of the service as was put in place by the colonial
masters although with little modification. It was effective for
Nigerians then to accomplish their mission but today it is no more
effective for us if we must meet the challenges of development in the
21st century. Enugu State, therefore, should decentralize her civil
service to a reasonable extent from the center to the out-post officers
so as to give them power to attend to emergencies as they arise.
Nigeria should borrow a leaf from some advanced countries like
Asian countries, France, US, Germany, Netherlands, and Canada
who have tremendously improved their civil service by making it
more clients public-oriented. They achieved this by using a model of
centralized control allowing a reasonable degree of decentralization,
flexibility and delegation of civil service management system. Enugu
State should emulate the above mentioned industrialized countries
by embarking on a search for ways to reduce civil service
expenditures and at the same time improve performance standards
in government t by adopting the “New Public Management (NPM)
84
Style” or the “New Managerialism”. It could do by way of adopting
process. Hood (1991), opined that major New Public Management
(NPM) doctrines are that (a) direct (B) private sector style
management practices must be applied to increase flexibility in
decision making (c) competition in the public sector must be
increased to help lower costs and better standards (d) the public
sector must be decentralized to make units more manageable and
productive (e) results should be stressed rather than procedure
(f) explicit standards and performance measure must be established
because accountability requires clearly stated aims and efficiency
requires attention to goals (g) managers must be given powers for
professional management, because accountability requires clear
assignment, of responsibility not diffusion of power. According to
Jann (1997:P 96), the New Public Management inspired measures
include reduction and refocusing of public sector functions through
staff reductions and changes in budgetary allocations, restructuring
of public organizations through reorganization of ministries,
decentralization, delinking or hiving-off of central government
functions to local governments other bodies or private sector etc.
Some examples of the countries that adopted cut back
management according to Nunberg (1995) included the United
States of America in the early 1980s. Dutch government’s
downsizing exercises reduced the civil service personnel by two per
85
cent per annum, in the mid 1980s, a Japanese programme to reduce
civil service staff by five per cent took place between 1986 and 1992,
and the United Kingdom’s reduction of civil service staff by 22 per
cent was between 1979 and 1989.
Workers often struggle with the government before they are
paid their minimum wage or living wage. Sometimes some States will
agree to pay, while some other Stats disagree to pay the minimum
living wage to the workers. If a salary regulatory body is established,
workers salaries would be adjusted based on the State of the
country’s economy and this will drastically reduce the frequency of
strikes, embezzlement, other corrupt practices, and low morale by
the civil servants. The argument that adequate pay is crucial for
sustaining the motivation, performance, integrity of public servants
had been widely accepted and documented (Kiragu et al., 2004: 109).
In Malasia, for example, a New Remuneration System has
been established which ensures that incentive packages are
regularly given to the workers. Still and, in particular personal
achievements are recognized and rewarded. In countries like, United
States of America, Australia and Germany, salary regulatory bodies
are established. In Botswana public service, a salary regulatory body
known as “Presidential Salary Review Commission” has been
instituted to regulate the salary of workers in line with the State of
the country’s economy (Anazodo, Okoye, and Chukwuemeka, 2012).
86
Many of the practices that support performance also positively
impact job satisfaction, employee retention and loyalty. Recommended
practices include:
(1) Delivering regular relevant job feedback
(2) Setting and communicating clear performance expectations
(3) Linking performance to compensation clearly
(4) Identifying organizational career paths for employees
(5) Evaluating performance and delivering incentives manner
(6) Providing appropriate learning and development opportunities
(7) Recognizing and rewarding to performances (Watson Wyatt’s Human
Capital index-Work USA 2004).
According to Astrazeneca (2004) gave four principles that will govern
the structures, processes and systems and behaviours for performance
management include:
(1) Aligned objectives – they maintained that individual, department/
function and team objectives are cascaded and aligned with current
business objectives so that everyone is working towards the same
overall objectives in the most effective manner. This will help workers
to know what is expected of them and how this helps to deliver overall
business objectives. Managers are accountable for ensuring that
individual and team objectives are clear, relevant, measurable and
documented. Managers will encourage and support managed risk-
taking, creativity, innovation and challenge when agreeing on
individual’s objectives.
(2) Joint Responsibility – individuals, managers and project leaders are jointly
responsible for the effectiveness of the performance management process. Managers
are accountable for creating a challenging and supportive environment in which all
87
individuals are able to give of their best performance, and for ensuring a reasonable
total workload for individuals. Individuals, managers and project leaders must have an
equal commitment to the objectives set, including agreeing the means by which to
achieve them. In addition to meeting their own objectives, individuals are expected to
support others in delivering outstanding team performance.
(3) Constructive Conversations – there is open and honest dialogue between
individuals, managers and project leaders. Individuals, managers and project leaders
need to have frequent, clear, open and fair conversations with each other about the
level of performance they are achieving and also how they work together. There
should be clear, open and honest conversations about learning and development needs,
and about aspirations and opportunities for growth and development, and plans agreed
to meet these needs. Where an individual’s performance and/or behaviour are not to
the required standards, the manager will discuss this promptly with the individual and
will work with him/her to address this.
(4) Reviewing and Rewarding Performance- everyone in Astrazeneca Company
was given the opportunity to understand the link between their performance and their
reward and recognition. Managers would communicate openly performance
management and Global Remuneration principles. Managers and project leaders
would demonstrate capability to carry out their performance management and reward
responsibilities. There will be a demonstrable link between an individual’s
performance and the level of reward and recognition they achieve. Astrazenca will
deliver higher rewards to higher-performing individuals, and also reward contribution
to team performance.
Source: Astrazenrce (2004) Astrazeneca Performance Management Principles, Astrazeneca.
88
2.1 Gap in Literature
During Dr. Nnamani’s tenure as Enugu State former
Governor and Barr. Sullivan Iheanacho Chime as his predecessor,
no previous study of this researcher’s contact had been in Enugu
State on such uninterrupted democratic era.
Barrister Sullivan Chime, the present democratically elected
Governor had made great attempt to sustain this tempo. He had
been using the civil service which is a government institution to play
his important role of ensuring that government policies result in
tangible services for the entire population of Enugu State. From the
literature review, no previous work had been written or presented on
performance management of civil service, Enugu State within the
period under review. This study has been designed to fill these gaps
in the literature.
2.2 Theoretical Framework
One of the explicatory theories upon which performance
management is based is Goal-setting theory. Goal-setting theory
(Locke and Latham 1990), is a theory of motivation to explain
human action in specific work situations. A goal is an objective that
a person is trying to accomplish through his or her efforts (Locke et
al., 1981: 126). Goals motivate the individual employee (Locke and
Latham, 1990) by:
− Directing one’s attention;
89
− Regulating one’s efforts;
− Increasing one’s persistence;
− Encouraging the development of goal-attainment strategies or
action plans.
Direction (or focus), effort regulation (e.g. meeting deadlines),
persistence (or determination) and goal-attainment strategies and
action plans have a positive impact on the task performance of an
individual employee. Locke (2003: 116-21) summarizes the most
important findings and assumptions of the goal setting theory in
empirical studies as follows:
1. Setting Clear Goals:
This finding suggests that when one’s goal is clear, one can
know what he/she is trying to achieve. One can also measure
results accurately. It will also help one to know which behaviour is
to be rewarded or not. It is important to b e as specific as possible
about the goals for an employee. This way the employee can focus.
The goal-setting effects are stronger for easy tasks than for complex
tasks. Vague goals such as ‘do your best’ – or when you express a
goal as a general instruction like ‘take initiative’ – it is not easy to
measure, and it is not motivating, so it should be avoided.
90
2. The more difficult the goal, the greater the achievement
People are often motivated by challenging goals; however it is
important not to set a goal that is so challenging that it cannot be
achieved.
3. Securing Team Commitment:
The front-line manager or direct supervisor can play an
important role in convincing employees of the goal relevance
especially if they have been involved in setting it. Locke (2003: 116)
explains that when goals are easy and vague, it is not difficult to get
commitment, because it does not require much dedication to reach
easy goals, and vague goals can be easily redefined to accommodate
low performance.
4. Gaining Feedback:
Goal-setting is most effective when there is feedback showing
progress in relation to the goal. It helps when employees are given
feedback on their performance, in particular feedback on improving
their performance in the direction of the ultimate goals. This is also
known as ‘knowledge of score’ (Locke, 2003).
5. Considering Task Complexity:
One should take special care to ensure that work does not
become too overwhelming when goals or assignments are highly
complex. People who work in complicated and demanding roles can
often push themselves too hard, if they do not take account of the
91
complexity of the task. If one notice that any team members are
overwhelmed, consider putting them into a coaching or monitoring
relationship with a more experienced colleague.
Goal setting theory as proposed by Edwin Locke (1968)
suggested that the individual goals established by an employee
play an important role in motivating him for superior performance.
This is because the employees keep following their goals. If these
goals are not achieved, they either improve their performance or
modify the goals and make them more realistic. In case the
performance improves it will result in achievement of the
performance management system aims (Salaman, et al., 2005).
Locke’s research showed that there was a relationship between how
difficult and specific a goal was and people’s performance of a task.
He found that specific and difficult goals led to better task
performance than vague or easy goals.
2.3 Justification for the adoption of the Theory:
The Locke and Latham (1990) goal-setting theory of
motivation is relevant to our study of performance management of
civil service in Enugu State.
Goal setting is something that many recognize as a vital part
of achieving success. A practical application of the goal-setting
theory is offered by Kinicki (1992, in Kreither et al., 2002) which
92
states that goals should be Specific, Measurable, Attainable, Result-
oriented and Time-bound (SMART).
− Specific: goals should be formulated in precise terms;
vagueness should be avoided.
− Measurable: goals should be measurable and measurement
device can be very helpful in doing so.
− Attainable: goals should be realistic, challenging and
attainable in the perceptions of those who are submitted to it.
Impossible goals should be avoided because these cause
decreasing employee motivation.
− Result-oriented: the goals should be in line with the
corporate goals, with a focus on desired end results in line
with the business strategy.
− Time-bound: goals should be linked to specific target dates
for completion.
To use this too, set clear, challenging goals and commit
yourself to achieving them. Be sure to provide feedback to others on
their performance towards achieving the goals and reflect on your
own progress as well. Also consider the complexity of the task, and
break your goals down into smaller chunks, where appropriate. If
we allow these simple rules, our goal setting will be much more
successful, and our overall performance will improve.
Despite the contributions of Locke and Latham to the
understanding of performance management, it has been criticized
93
by many scholars. Some scholars argued that it is too technical and
that it can be only work in Japan and other countries that have well
established team workers. Others argued that the present level of
development of Enugu State civil service may not allow the theory
to work well. Also there is the problem of individuals who may be
tempted to take risky actions in pursuit of their goals, which could
potentially lead to failure rather than success. Whatever may be the
views of the critics, it is the strong contention of the researcher that
the Goal Setting theory can be successfully applied in Enugu State
in the following ways: The theory guided us in this work as it
showed how workers could set clear and objective goals. The Goal
setting theory also aided our work as workers were in a good
position to ascertain if they are contributing towards the
achievement of business strategy or not. The process of Goal
Setting as used in this work enabled departmental managers well
focused on their goals as based upon organization-wide goals,
which support the general business strategy. The Goal
Setting framework provided clarity up front to employees who will
be evaluated against these goals.
It is the belief of the researcher that lack of accomplishment
of goals leads to job dissatisfaction. Thus, Goal setting theory can
be useful in predicting job satisfaction. Job satisfaction is an
important attribute for employee productivity and commitment to
94
the organization. It is also important to state that one of the
components of goal setting theory is its measurability. Goals must
be stated in some measurable terms so that the person attempting
to achieve the goal and those who may be measuring and
evaluating performance can tell when the goal has been met.
2.4 Hypotheses
(1) Performance management in Enugu State civil service is
significantly enhanced through training of staff, promotions,
high salaries, and housing and car loans.
(2) Staff appraisal contributed positively towards workers
performance in Enugu State civil service.
(3) There exist significant measures that can be employed to
(4) enhance performance management in Enugu State civil
service.
2.5 Operationalisation of Key Concepts
Performance Management
Performance management is a continuous process of
identifying, measuring and developing the performance of
individuals and aligning performance with the strategic goals of the
organization (Aguinis, 2009).
Civil Service is the bedrock of the executive arm of government,
charged with the task of implanting and executing the policies
decided by the political authorities (Adesayo, 2000: 107).
95
Management: Grifin (1997) defines management as a set of
activities (including planning and decision-making, organizing,
leading and controlling) directed at an organizations resources
(human, financial, physical, and information) with the aim of
achieving organizational goals in an efficient and effective manner.
Bureaucracy:
Bureaucracy, according to Max Weber and Peter Blau (1918) is
a form of organization designed to accomplish large-scale
administrative tasks by a systematic coordination of the work of
many individuals. Bureaucracies in one form or the other are
inescapable feature of modern, complex societies, and the basic
instrument for implementing the purposes of government or any
other (systematically) organized activity.
Motivation:
It is the forces determining the behaviour of an employee in
relation to performing or slacking in the performance of his or her
work at the workplace. In other words, it is the intrinsic (internal)
and extrinsic (external) forces that make an employee either
productive or not in his or her workplace.
Performance:
According to Business Dictionary, it is the accomplishment of
a given task measured against present known standards of
96
accuracy, completeness, cost, and speed. In a contract performance
is deemed to be the fulfillment of an obligation, in a manner that
releases the performer from all liabilities under the contract.
Productivity
It is the rate at which an employee/employees or an
organization produces good or delivers services, and the amount
produced or performance deliverance in relation to the time spent,
money and work expended on the task. We use productivity in the
discourse to imply highest level of performance on the part of an
employee.
97
CHAPTER THREE
3.0 STUDY AREA AND RESEARCH PROCEDURE
3.1 Study Area: Enugu State
Enugu State, South-East of Nigeria, is one of the thirty-six
States constituting the Federal Republic of Nigeria. It came into
being on 27 August, 1991 when the administration of the then
Military President, General Ibrahim Babangida, finally acquiesced
to the long agitations of Wawa people for a State they could truly
call their own. Enugu State derives its name from the capital city,
Enugu (top of the hill), which is regarded as the oldest urban area
in the Igbo speaking area of South-East Nigeria. The discovery of
the solid mineral in the area brought about the emergence of a
permanent cosmopolitan settlement which influenced the
construction of a railway line to link the Enugu coal fields with the
seaport in Port Harcourt for the evacuation of the mineral to
Europe. In fact, by 1917 Enugu had acquired township status and
assumed strategic importance to British interests. Foreign
businesses began to move into Enugu, the most notable of which
were John Holt, Kingsway Store, United Bank of West Africa and
United African Company. By 1929, Enugu had become the capital
of the former Eastern Region, and has since then retained its old
status as the regional industrial and business hub as well as the
political capital and rallying point of the Igbo people.
98
Geographical Location
Situated on much of the highlands of Awgu-Udi-Nsukka hills
and the rolling low lands of the Idodo River basin to the West, the
State is bounded by five other States with which it shares common
boundaries. It spreads southwards to the borders with Abia and
Northwards to Benue States. Apart from a chain of low hills
running through Abakaliki in neighbouring Ebonyi state in the East
to Nsukka in the West and then Southwards through Enugu and
Awgu, the rest of the State is made up of low lands, crisscrossed by
numerous streams and rivulets of which the major ones are the
Adada, Oji, Ekulu, Nyama, Nvene and Agalli Rivers (2010 Enugu
State Diary: The Government Printer, Enugu).
The People
Enugu state has a population of 3,257,298 (2006 census)
with a population density that is two and a half times the national
average. Its people are Igbo by ethnic grouping. They are widely
known to be hospitable, very resourceful and hard-working. Skilled
manpower resources are therefore readily available in almost every
sphere of human endeavour.
Politics
The State Government and the Local Government are the two
levels of governments in Enugu State and in all other States of
Nigeria. Barrister Sullivan Chime is the current Executive Governor
99
of Enugu State. The State comprises three geo-political zones
namely: Enugu North, Enugu South and Enugu East geo-political
zones.
Administrative Divisions
The Local Government Law (2000) divided Enugu State into
17 Local Government Councils. These include Aninri, Awgu, Enugu
East, Enugu North, Enugu South, Ezeagu, Igbo-Etiti, Igbo-Eze
South, Igbo-Eze North, Isi-Uzo, Nkanu East, Nkanu West, Nsukka,
Oji River, Udenu, Udi and Uzo-Uwani. The Local Government is a
creation of the Constitution of the Federal Republic of Nigeria of
1999. It is the third tier of government and often regarded as
government at the grassroots level. A further 39 local government
Development Centers were created in 2004 which have since been
redesignated as Local Government Development Areas (LGDAs).
Economy
Economically, the State is predominantly rural and agrarian,
with a substantial proportion of its working population engaged in
farming, although those for trading (18.8%) and those for services
delivery (12.9%) are also important. In urban areas, trading is the
dominant occupation, followed by services. A small proportion is
also engaged in manufacturing activities, with the most pronounced
among them located in Enugu, Oji and Nsukka.
100
Educational Facilities
Eze and Okafor (2009) remarked that every community in
Enugu State has at least one primary school and one secondary
school, funded and run by the State Government. There are also
large numbers of private nursery, primary and secondary schools in
Enugu State. Nigeria’s first indigenous University, University of
Nigeria, Nsukka is located in Enugu State. The State also hosts the
Enugu State University of Science and Technology (ESUT), Institute
of Management and Technology (IMT) Enugu, State College of
Education Technical, Caritas University Amorji, Nike, Renaissance
University, Ugbawka, Federal College of Education, Eha-Amufu,
Federal Government College, Enugu, Federal School of Dental
Technology & Therapy Enugu, College of Immaculate Conception,
Enugu among others. The Website on Enugu State equally revealed
that there are also a host of private computer schools and training
centres concentrated in Enugu and Nsukka. There is also a
deliberate policy for the promotion of computer education at the
early stages of formal education.
Health Facilities
The University of Nigeria Teaching Hospital (UNTH), one of the
foremost teaching hospitals in Nigeria, is located in Enugu State. So
also is the state-of-the-art Enugu State University Teaching
Hospital and College of Medicine at Park Lane, GRA, Enugu. In
101
addition to the numerous private hospitals and clinics in the State,
there are seven District Hospitals in Enugu namely Udi, Agbani,
Awgu, Ikem, Enugu-Ezike and Nsukka. There is also at least one
health centre or cottage hospital in every one of the seventeen (17)
Local Government Areas and thirty-nine (39) Development Areas in
the State.
According to Amujiri (1999: 49) the evolution of Enugu State
Civil Service could be said to have passed through five distinct
stages. These are as follows: -
(a) As part of a Civil Service that was largely oriented
towards provincial administration between 1914 and
1946.
(b) As part of a regional Civil Service from 1946 to 1967
when the military took over the reins of government and
States were created.
(c) As part of the East Central State Civil Service from May
1967 to February 1976 when the country, still under
military government, was broken into 19 State
structure.
(d) As part of the Civil Service of the former Anambra State,
after the creation of State in February 1976.
(e) And as the Civil Service of the present Enugu State after
the creation of States in August 1991.
102
The Enugu State Civil Service is made up of Nineteen
Ministries, wherein each ministry has a Commissioner as the Chief
executive and Permanent Secretary as the accounting officer. They
work in concert with the Secretary to the State Government and
Head of Service to supervise and co-ordinate the implementation of
government policies and programmes. These ministries are:
(a) Ministry of Agriculture and Rural Development
(b) Ministry of Chieftaincy Matters
(c) Ministry of Commerce and Industry
(d) Ministry of Education
(e) Ministry of Environment and Mineral Resources
(f) Ministry of Finance and Economic Development
(g) Ministry of Gender Affairs and Social Development
(h) Ministry of Health
(i) Ministry of Human Development and Poverty Reduction
(j) Ministry of Information, Culture and Tourism
(k) Ministry of Justice
(l) Ministry of Lands and Housing
(m) Ministry of Local Government Matters
(n) Ministry of Rural Development
(o) Ministry of Science and Technology
(p) Ministry of Transport
103
(q) Ministry of Water Resources
(r) Ministry of Works and Infrastructure
(s) Ministry of Youth and Sports
The Enugu State Civil Service Commission has the following
Departments:
(a) The Chairman’s Office
(b) Permanent Secretary’s Office
(c) Administration
(d) Finance and Accounts
(e) Planning research and Statistics
(f) Appointments
(g) Promotion, Discipline and Appeals.
The above Departments in the Civil Service Commission carry
on the following functions: Appointment of Civil Servants,
confirmation of appointments, Civil Service promotions and career
progression, discipline, implementation of Civil Service Rules and
Regulations. The Civil Service operates a unified grading system in
which all positions in the service were graded from levels 01 -17,
Grade Level 01 being the lowest grade while level 17 the highest
position in the Civil Service. (See Appendix 4).
104
MAP OF ENUGU STATE
105
3.2 Research Procedure
3.2.1 Research Design
The study combined the documentary and a sample survey
research design. Information was gotten from existing documents
related to the topic and information in the libraries. A sample
survey was used to consolidate and provide more in-depth and
specific information from the State civil service and the citizens of
the State.
The research design of this study was the survey research
design. It helped us to ascertain the boundaries of our research
activity and enabled us to channel our energies in more specific
directions.
3.2.2 Source of Data Collection
The major method of data generation for this study was the
primary and secondary sources. These included relevant materials
which were sourced from both public and private libraries. These
included books, journals, mimeographs, summary of workforce in
both ministries and Departments; Civil Service Rules, White papers,
Newspapers and Internet sources. The use of structured interview
helped to source out information from our respondents. The
interview was administered to 240 serving senior officers, 125
middle cadres, 100 management staff and 40 heads of departments.
106
The instrument for data collection was 28-item structured
interview questions. The questions had three clusters: Cluster A
sought information on training, retraining of staff, promotions,
adequate housing and car loans on the performance management of
Enugu State civil service. Cluster B focused on the obstacles
associated with workers performance management appraisal of
Enugu State civil service staff and Cluster C was on the effects of
corrupt practices and neglect of Enugu State civil service.
3.2.3 Population of the Study
The population of this study was made up of the totality civil
servants in Enugu State as could be found in the Ministries and the
Civil Service Commission. According to Secretary to the State
Government letter Ref. ENS/SSG/ECA/CON/164/S.9/16 dated
30/11/10 the population of Civil Servants working in Ministries,
Parastatals and other agencies in Enugu State as at 31st December,
2011 are as follows in the table overleaf.
107
Table 4: Population of Enugu State Government Ministries and Parastatals.
S/No. Ministries/Commissions Population
1. Ministry of Agriculture and Rural Development
531
2. Ministry of Chieftaincy Matters 511
3. Ministry of Commerce and Industry 173
4. Ministry of Education 715
5. Ministry of Environment & Mineral Resources 323
6. Ministry of Finance & Economic Development 387
7. Ministry of Gender Affairs & Social Development
226
8. Ministry of Health 2,700
9. Ministry of Human Dev. & Poverty Reduction 86
10. Ministry of Information, Culture & Tourism 173
11. Ministry of Justice 211
12. Ministry of Lands and Housing 354
13. Ministry of Local Government Matters 122
14. Ministry of Rural Development 25
15. Ministry of Science & Technology 38
16. Ministry of Transport 64
17. Ministry of water Resources 54
18. Ministry of Works and Infrastructure 1,427
19. Ministry of Youth and Sports 1,110
20. Civil Service Commission 870
Total = 10,100
(Enugu State MDA Organization and Functions Draft 3: November,
2010)
108
3.2.4 Sample and Sampling Procedures
Using Nwana (1981: 70-71), quoted in Obasi (1991: 115),
which indicated that if the population of a study was a few
hundreds, a 40% or more sample will suffice. But, if many
hundreds, a 20% while, if several thousands, a 5% or less sample
suffices.
Sample:
Table 5: Sample of Ministries of Enugu State Civil Service
S/No. Ministries/Commissions Population
1. Ministry of Education 715
2. Ministry of Human Dev. & Poverty Reduction 86
3. Ministry of Justice 211
4. Ministry of Environment & Mineral Resources 323
5. Ministry of Works & Infrastructure 1,427
6. Ministry of Transport 64
7. Ministry of Finance & Economic Development 387
8. Civil Service Commission 770
Total = 4,080
(Enugu State MDA Organization and Functions Draft 3: November 2012)
Based on this, the study took (five percent) 5% sample from
the population.
Population = 10,000
Percentage = 5
Sample size = 5001
10,000 x
100
5 =
109
Sample size was arrived at by a purposive sampling from
where a proportionate sample of 505 comprising 240 serving senior
officers, 125 middle cadre officers, 100 management staff and 40
heads of different departments were selected using five percent of
the population.
3.2.5 Method of Data Collection
The following instruments of data gathering were used in this
research. They included: Documentary instrument and interview
questions.
(a) Documentary Instrument
The documents we got from this source included those
dealing with appointments, recruitment, transfers, promotions and
dismissals. It also included: Civil Service Rules, White Papers,
Internet sources, Books and Journals.
(b) Interview Instrument
The interview instrument for data collection was a 28-item
structured question. The questions had three clusters. Cluster A
(S/No. 1-8) sought for information on evaluation of training and
retraining of staff, promotions, and adequate housing and car
loans. Cluster B (S/No. 10-20) sought for information on the
obstacles associated with workers performance management
appraisal. Cluster C (S/No. 21-31) asked questions on the
hindrances that impede on the measures employed by Enugu State
110
Government on the performance management of civil service in
Enugu State. (See Tables 11, 12 and 13).
3.2.6 Reliability and Validity of Instruments
The multiple data-gathering instruments employed in this
study helped to serve one common purpose, namely, improving the
reliability and validity of the findings. To ensure reliability, we used
item discriminatory analysis which was part of internal consistent
method of measuring instrument (Obasi, 1999: 128). The
instruments were validated by three experts: One in Human
Resource, one in Educational Psychology. The reliability coefficient
of the instrument was computed using Crombach Alpha procedure
which gave reliability estimates of 0.69, 0.54 and 0.77 respectively
with an overall reliability index of 0.68.
3.2.7 Method of Data Presentation and Analysis
In this study, primary data collected through interviews and
observations were analyzed through descriptive and quantitative
means. The quantitative data used involved using relevant-
statistical tools such as tables and simple percentages while the
descriptive tool was used in analyzing data collected through
interviews and observations. We also made use of the means, and t-
test in analyzing our work.
The formula for –test is given below:
t =
2
22
1
21
21
n
S
n
S
XX
+
−
where:
1X = Mean of first set of values
111
2X = Mean of second set of values
1S = Standard deviation of first set of values
2S = Standard deviation of second set of values
1n = Total number of values in first set
2n = Total number of values in second set
The formula for standard deviation is given by:
S = 1n
X)(X 2
−−∑
Where: X = Values given
X = Mean
112
CHAPTER FOUR
DATA PRESENTATION, ANALYSIS AND FINDINGS
Introduction
This chapter deals with the data Presentation, Data Analysis
and Findings.
4.1 Data Presentation and Analysis
The data for this research was presented in two sections
according to the questionnaire.
Section I was the analysis of personal characteristics of
respondents and Section II was done in accordance with the
respondents’ opinions as obtained from the interview questions.
A total number of five hundred and five were interviewed.
This number served as the working population for the analysis. The
decision criteria was: any variable with mean (x) less the 3.00 was
Strongly disagree while variables with Mean (x) rate of 3 – 7 the
results were presented in percentages, while tables 8 – 10 were
presented in Mean.
Table 6: Sex distribution of the Respondents N = 500
SEX FREQUENCY PERCENTAGE
Male 280 56
Female 220 44
Total 500 100% Source: From Field Work 2013
113
Table 6 shows the sex distribution of 500 respondents used
for the study. Out of 500 respondents, 56% were males, while the
remaining 44% were females. The study, therefore, involved more
men than women.
Table 7: Status distribution of staff N = 500
STATUS FREQUENCY PERCENTAGE
Senior 440 88
Junior 60 12
Total 500 100%
Source: From Field Work 2013
Table 7, revealed that 88% are senior staff, while the
remaining 12% are junior staff. The study is skewed in favour of
senior staff.
Table 8: Marital status distribution of respondents
MARITAL STATUS FREQUENCY PERCENTAGE
Single 20 4
Married 460 92
Divorced - -
Widowed 20 4
Separated - -
Total 500 100%
Source: From Field Work 2013
From the above table, 4% are single; 92% are married, nil
percentage is divorced; 4% are widowed and nil percent are
separated. From the pattern of distribution, it is clear that the
study involved more married people than those who are single.
114
Table 9: Distribution of educational qualifications of the respondents
EDUCATIONAL QUALIFICATIONS FREQUENCY PERCENTAGE
F.S.L.C. - -
WASC/GCE - -
OND/NCE 60 12
HND/DEGREE 260 52
M.Sc/M.A. 160 32
Ph.D 20 4
Total 500 100%
Source: From Field Work 2013
The table 9 above shows that 12% of the respondents are
OND or NCE holders; 52% of the respondents are degree holders or
its equivalent, while 32% are holders of Masters Degree; 4% of the
respondents are PhD holders while F.S.L.C. and WASC/GCE had
nil responses.
From the distribution, it is quite clear that there are
reasonable numbers of well-informed civil servants in the state
capable of interpreting civil service rules and regulations.
Table 10: Age Distribution of the respondents. N = 500
AGE FREQUENCY PERCENTAGE
15 – 24 - -
26 – 34 20 4
35 -44 160 32
45 – 54 200 40
55 – 64 100 20
65 – 70 20 4
Total 500 100 Source: From Field Work 2013
115
The table 10 above, revealed that respondents between ages of
45 – 54 were 40%, those between 35 – 44 were 32%, 20% were
respondents between ages 55 – 64, those between 26 – 34 years of
age were 4%, ages 65 – 70 were 4%, whiles 15 – 24 were nil.
This shows that the Enugu State civil service have vibrant
work force (ages 35 – 54), capable of carrying out any reasonable
responsibility for the development of Enugu State in general.
116
Table 11: Results and Summary of interview on evaluation of training and retraining of staff, promotions, and adequate housing and car loans on the performance management of civil service in Enugu State
Source: From Field work 2013
S/No
Items M
ean
Sta
ndard
D
evia
tion
t-vale
Pro
b-v
alu
e
Decision
1. Is Enugu State civil service having the required trainings and retraining of staff to meet up with the required performance management system.
2.32 1.32 39.3 0.00 Significantly disagree
2. Is the management level able to show clearly what the job holders will do in terms of achieving organizational goals?
1.76 0.81 48.3
0.00 Significantly disagree
3. Do workers in Enugu State civil service receive higher pay than their counterparts in other States in order to boost their performance?
1.2 0.51 0.574 0.00 Significant, disagree
4. Is the Senior Public Service in Enugu State civil service playing its full role of providing leadership and management without political interference?
1.24 0.65 42.6
0.00 Significantly disagree
5. Civil service staff in Enugu State is being promoted as a result of worker’s performance.
1.88 0.86 48.6
0.00 Significantly disagree
6. Enugu State have a regulatory body that are uncharged of the workers’ salaries and this body curbs any struggle that may arise between government and the workers.
1.12 0.43 58.1
0.00 Significantly disagree
7. Workers in Enugu State civil service compete favourably with other workers in the public/private sectors for service delivery.
3.6 1.23 50
0.00 Significantly disagree
8. Has Enugu State increased the remunerations and incentives of her workers on individual or collective basis.
3.84 1.29 49.3
0.00 Significantly disagree
9. Overall average for testing of the performance management on training, and retraining of staff, promotions, adequate housing and car loans.
1.95 0.37 48.55 0.00 Significantly disagree
117
Table 11 overleaf contained responses to the question
aimed at ascertaining the answers on cluster A. This seeked to
know the training, retraining and staff, promotions, adequate
housing and car loans on the performance management of
Enugu State civil service. On the question whether Enugu
State civil service had adequate training and retraining of her
workers, the respondents showed that the mean average of
respondents was 2.32 with a probability as low as 0.00 (lower
than 0.05) and a high t-statistics of about 39.3 (higher than
1.96). This showed that the respondents significantly
disagreed that workers of Enugu State civil service were
adequately trained and retrained. They thus clamoured for
considerable increase in the training and retraining of workers.
Whether the management cadre of Enugu State civil
service was able to show clearly working apparatus whereby
the job holders were able to verify if they were on course in
achieving the organizational goals, was seriously looked into.
In the course of this research, an average mean of 1.76 with a
probability as low as 0.00 (lower than 0.05) and a high t-
statistics of about 48.3 (higher than 1.96) were discovered.
This showed that the respondents significantly disagreed that
the management level could put such measurement apparatus in
place and this made it very difficult for workers to know if they had
satisfied their performance goals or not.
118
On the response that workers of Enugu State civil service
received higher pay than their counterparts in other States of
Nigeria, a mean average of 1.2 with a probability as low as 0.00
(lower than 0.05) and a high t-statistics of about 0.57 (lower than
1.96) were discovered. This showed that the respondents
significantly disagreed that Enugu State civil service were paid
higher than their counterparts in other States of the federation
On the question whether the senior public service cadres
played their full role of providing leadership and management
devoid of political interference, an average mean of 1.24 with a
probability as low as 0.00 (lower than 0.05) and a high t-statistics
of about 42.6 (higher than 1.96) was scored. This showed that the
respondents significantly disagreed that the senior public service
cadre in Enugu State civil service did not provide the leadership
role and management devoid of political interference.
For the question on whether members of Enugu State civil
service staff were promoted as a result of their work performance
indices, the answer given showed that an average mean of 1.88 with
a probability as low as 0.00 (lower than 0.05) and a high t-statistics
of about 48.6 (higher than 1.96) were given. This showed that the
respondents significantly disagreed that the workers were promoted
as a result of their work-performance indices. The respondents
responded that Enugu State had no regulatory body that was in
charge of the workers’ salaries that should curb struggles that
might arise between government and workers. An average mean of
119
1.2 with a probability as low as 0.00 (lower than 0.05) and a high t-
statistics of about 58.1 (higher than 1.96) were given.
A mean average of 3.6 with a probability as low as 0.00 (lower
than 0.05) and a high t-statistics of about 58.0 (higher than 1.96)
were given on the question that Enugu State civil service competed
favourably with other workers in the public/private sectors for
service delivery. This showed that the respondents significantly
agreed that they did not compete favourably with their counterparts
in other public/private sectors of the economy.
The respondents significantly disagreed that Enugu State
government had increased the remunerations and incentives with
an average mean of 3.84 with a probability as low as 0.00 (lower
than 0.05) and a high t-statistics of about 49.3 (higher than 1.96).
Documentary evidence at Enugu State Ministry of Establishment
confirmed that the minimum wage issue had not been resolved (see
Table 14).
On the overall indices that were aimed at investigating the
enhancement of Enugu Sate civil service through training,
retraining and promotion if members of staff as well as adequate
housing and car loan had an average mean of 1.95 with a
probability index as low as 0.00 (lower than 0.05) and a high t-
statistics of about 48.6 (higher than 1.96). This showed that the
respondents significantly disagreed on a general note that workers
in Enugu State civil service had the required training, retraining of
staff, promotions, adequate housing and car loans. This was further
confirmed by our documentary evidence which showed that workers
120
were not motivated through study leave with or without pay and other
training programmes (see Table 14).
Table 12: Respondents’ opinion on obstacles associated with workers’ performance management appraisal which impeded performance management on civil service in Enugu State.
Source: From Field Work 2013
S/N
o
Items M
ean
Sta
ndard
D
evia
tion
t-vale
Pro
b-v
alu
e
Decision
10. Do Enugu State civil service have performance management system which seeks to enhance performance at all levels by focusing on key areas of activity/ services to e delivered which are identified through strategic planning process?
2.44 1.02 53.3 0.00 Significantly disagree
11. Has the head of sections/unit plan based on key Result Areas assigned by the supervising officer?
3.52 1.33 59.1 0.00 Significantly disagree
12. Do the workers of Enugu State civil service being able to be monitored during the appraisal period and documenting performance and communicating and providing feedback?
4.04 1.22 74.22 0.00 Significantly disagree
13. Supervisors do not keep performance registers of their workers and know how and when he meets up with the set goals.
4.32 0.97 99.7
0.00 Significantly agree
14. Enugu State does not give Awards regularly for outstanding work performance which had impact on public interest.
4.44 0.98 100.9
0.00 Significantly agree
15. Supervision of staff in Enugu State civil service had not helped staff to perform creditably well and also had not been a source of motivation to workers.
4.12 1.18 40.2
0.00 Significantly agree
16. Enugu State has been slow in motivating employees and providing effective communications which is associated with effective implementation of change.
4.44 0.85 116.4
0.00 Significantly agree
17. Enugu State government has a well laid down system of “positive” motivators with a credible and fair risk of sanction in case of misbehaviour.
1.72 0.67 57.8
0.00 Significantly disagree
18. Enugu State civil service is using the new performance management appraisal form to evaluate her numerous members of staff.
2.04 1.22 35.5 0.00 Significantly disagree
19. Individual incentives are often low-powered in Enugu State civil service, mainly because of the difficulty to finding appropriate objective performance measures to which remunerations are linked to.
4.36 0.63 155.9 0.00 Significantly agree
20. Overall average of the obstacles associated with workers performance appraisal which impedes performance management of civil service in Enugu State.
3.74 0.27 276.7 0.00 Significantly agree
121
Table 12 contained responses to the cluster B which aimed at
answering the second hypothesis. The hypothesis seeked to
determine the obstacles associated with workers performance
management appraisal which either impeded or aided Enugu State
civil service workers.
The answer to the question whether Enugu State civil service
had a performance management system that enhanced performance
at all levels through strategic planning process, the study found out
that a mean average of respondents showed 2.44 with a probability
as low as 0.00 (lower than 0.05) and a high t-statistics of about
53.3 (higher than 1.96) were scored. This showed that the
respondents significantly disagreed that Enugu State civil service
had a performance management system which seeked to enhance
performance at all levels by focusing through strategic planning
process.
A mean response of 3.52 with a probability as low as 0.00
(lower than 0.05) and a high t-statistics of about 59.1 (higher than
1.96) were given on the answer that the heads of Enugu State
service sections/units had developed plan based on key Result
Areas as assigned by supervising officers. This showed that the
respondents significantly disagreed that such plans existed.
122
On the answer to the question whether the workers of Enugu
State civil service had been able to be monitored during their
appraisal period with its documentation and communication and
provision of the feedback, the mean average of 4.04 with a
probability as low as 0.00 (lower than 0.05) and a high t-statistics
of about 74.22 (higher than 1.96) were given. This showed that the
respondents did not agree that there were such monitored appraisal
period with its documentation, communication and feedback. The
mean response of 4.32 with a probability as low as 0.00 (lower than
0.05) and a high t-statistics of about 99.7 (higher than 1.96) were
given on supervisors keeping registers for workers appraisals, this
indicated that the respondents significantly agreed that supervisors
of Enugu State civil service staff did not keep performance registers
of their workers which could have been an aid to the supervisors to
determine whether the workers were able to accomplish their
performance goals or not. This was also confirmed by documentary
evidence of Ministry of Establishment field data 2013. (Table 16).
A mean average of 4.44 with a probability as low as 0.00
(lower than 0.05) and a high t-statistics of about 100.9 showed that
the respondents agreed that Enugu State government awards
regularly to her members of staff for outstanding work done and
these had positive impact on the public interest.
123
Answer given that supervision of staff of Enugu State civil had
not helped workers to perform creditably well and also had not been
a source of motivation to the workers, had mean average
respondents of 4.44 with a probability as low as 0.00 (lower than
0.05) and a high t-statistics of about 116.4 (higher than 1.96). This
showed that the respondents significantly agreed that staff
supervision of Enugu State civil service had not helped staff to
perform creditably well. The respondents agreed that Enugu State
government had been slow in motivating employees and providing
effective communications which was associated with effective
implementation of change. A mean average of 4.12 with a
probability as low as 0.00 (lower than 0.05) and a high t-statistics
of about 40.2 (higher than 1.96) were given. This signifies that the
respondents agreed that Enugu State government had been slow in
motivating her employees and non provision of effective
communication for possible change.
Whether Enugu State government had a well laid down
system of “positive” motivators and laid down apparatus for
sanction in case of misbehaviours of workers, a mean average of
1.72 with a probability as low as 0.00 (lower than 0.05) and a high
t-statistics of about 57.8 (higher than 1.96) was adduced. This
showed that the respondents significantly agreed that there was
apparatus for “positive” motivators and laid down rules for
124
sanctions in case of workers misbehaviours, but unfortunately,
these efforts, rules, regulations, codes and warnings (reference civil
service Rules Nos. 04201, 04202, 04203, 04206) were not
observed by some of these recalcitrant, indiscipline and disloyal
officers who appeared bent on damaging the images of the service.
Whether Enugu State civil service is used the new
performance management appraisal form in evaluating her
numerous staff, an average mean of 2.04 with a probability as low
as 0.00 (lower than 0.05) and a high t-statistics of about 37.5
(higher than 1.96) were recorded. This showed that the respondents
significantly disagreed that the new performance management
appraisal form was in use in Enugu State civil service.
Whether individual incentives of Enugu State civil service
workers are often low-powered mainly because of the difficulty in
finding appropriate objective performance measures to which
remunerations are linked to, the mean average of respondents for
this was 4.36 with a probability as low as 0.00 (lower than 0.05)
and a high t-statistics of about 155.9 (higher than 1.96) were
observed. This showed that the respondents significantly agreed
that individual incentives are often low-powered in Enugu State
civil service mainly because of the difficulty to finding an
appropriate objective performance measures to which
remunerations are linked to.
125
The answer to the obstacles associated with workers
performance management appraisal, gave an average mean of 3.74
with a probability as low as 0.00 (lower than 0.05) and t-statistics of
about 267.7 (higher than 1.96) were given. This showed that the
respondents significantly agreed on a general note that the
performance management appraisal in Enugu State civil service
had been obstacles to evaluation because of its subjectivity.
126
Table 13: Respondents’ opinion on the hindrances that impede on the measures employed to engender performance management in Enugu State civil service.
Source: From Field Work 2013 (Appendix 5)
S/No
Items M
ean
Sta
ndard
D
evia
tion
t-vale
Pro
b-v
alu
e
Decision
21. Enugu State has not been able to improve the result of its civil service organizations through the auditing and reviewing mechanism which is currently in vogue for political accountability and information transparency of government.
4.44 0.94 105.3 0.00 Significantly agree
22. Workers of Enugu State civil service are paid on the basis of pay-for-performance based on objective measures of performance.
1.4 0.85 36.9
0.00 Significantly disagree
23. Workers’ recruitment in the service had been majorly been based not on merit but more on favouritism and political patronage.
3.88 1.18 73.6 0.00 Significantly agree
24. Enugu State civil service staff is weakly motivated and are unwilling to put forth effort in their performance.
3.96 1.22 72.8
0.00 Significantly agree
25. Politicians and parliament occasionally collude with corrupt administrators if they need cash to finance the electoral process and other expenditures.
4.28 1.08 88.7
0.00 Significantly agree
26. Corruption of some high ranking officers in the civil service discourages greater percentage of workers from performing highly.
3.92 1.36 64.7
0.00 Significantly agree
27. Anti-corruption measures such as Independent Corrupt Practices and Other Related Offences Commission (ICPC) and Economic and Financial Crimes Commission (EFCC) sometimes have been used by government t to harm political opponents.
3.96 1.18 74.8
0.00 Significantly agree
28. Enugu State civil service staff has developed informal rules that are more in line with real constraints and they resist change.
3.72 1.12 74.6
0.00 Significantly agree
29. Has Enugu State civil service staff been able to apply moral ethics, efficiency and effectiveness in serving the public
1.64 1.02 36.1 0.00 Significantly disagree
30. The Enugu State government’s poor budgetary allocation to the State civil service does not encourage performance management system in Enugu State.
4.00 1.29 68.9 0.00 Significantly agree
31. Overall average on the hindrances that impede on the measures employed to engender performance management in Enugu State civil service.
3.52 0.56 140.1 0.00 Significantly agree
127
Table 13 overleaf contained interview questions and responses
on the hindrances that impeded on the measures employed to
enhance performance management in Enugu State civil service.
On the answer to one of the questions in this cluster inquiring
whether Enugu State had been able to improve the results of its civil
service organizations through auditing and reviewing mechanism
and also through political accountability and information
transparency, the study found out that average mean of respondents
gave 4.44 a probability as low as 0.00 (lower than 0.05) and a high t-
statistics of about 105.3 (higher than 1.96) were given. This showed
that the respondents significantly showed that Enugu State had not
been able to improve its work force through auditing and reviewing
mechanism and through holding its political office holders
accountable through information transparency.
Whether Enugu State civil service workers are paid on the
basis of pay-for-performance based on objective measures of
performance, an average mean of respondents gave 1.4 with a
probability as low as 0.00 (lower than 0.05) and a high t-statistics of
about 36.9 (higher than 1.96) were rated. This showed that the
respondents significantly disagreed that the civil service workers
were paid on the basis of pay-for-performance based on objective
measurement of performance.
128
For the questions that workers of Enugu State civil service are
recruited majorly on favouritism and through political patronage
than through merit; the respondents gave 388 which had a
probability as low as 0.00 (lower than 0.05) and a high t-statistics of
about 73.6 (higher than 1.96). This showed that respondents
significantly agreed that, recruitment had been through favouritism
and political patronage. There was also a response of an average
mean of 3.96 with a probability as low as 0.00 (lower than 0.05) and
a high t-statistics of about 72.8 (higher than 1.96) on the inquiry
that Enugu State civil service workers were weakly motivated and
are unwilling to put forth efforts in their performance. The
respondents agreed to this position that workers are weakly
motivated and unwilling to put efforts in their performance.
An average mean of 4.28 with a probability as low as 0.00
(lower than 0.05) and a high t-statistics of about 88.7 (higher than
1.96) was given on the question that politicians and parliament
occasionally collude with corrupt administration if they needed cash
to finance their electoral process and other important expenditures
that may be of serious needed by them. They significantly agreed
that the politicians and parliament occasionally colluded with
corrupt civil service officials.
Also answering the question whether corruption of some high
ranking officers in the civil service discouraged greater percentage of
129
other workers putting in their best, an average mean of 3.92 with a
probability as low as 0.00 (lower than 0.05) and a high t-statistics of
about 64.7 (higher than 1.96) were made. This showed that the
respondents significantly agreed that corrupt practices of high
ranking officers greatly affected the greater percentage of other
workers from putting their best.
Whether anti-corruption measures such as Independent
Corrupt Practices and Other Related Offenses Commission (ICPC)
and Economic and Financial Crimes Commission (EFCC) sometimes
had been used by government to harm their political opponents.
Respondents gave an average response of 3.96 with a probability as
low as 0.00 (lower than 0.05) and a high t-statistics of about 74.8
(higher than 1.96). This showed that at times, these anti-corruption
measures by government were negatively used defeating the
intentions which they were established.
An average mean of 3.72 with a probability as low as 0.00
(lower than 0.05) and a high t-statistics of about 74.6 (higher than
1.96) answered the question that Enugu State civil service staff had
developed informal rules that are more in line with real, constraints
which made them to resist change were recorded. This showed that
the respondents significantly agreed that State civil service workers
had informal rules that contributed to the constraints in
performance management of civil service staff.
130
An average mean of 1.64 with a probability as low as 0.00
(lower than 0.05) and a high t-statistics of about 36.1 (higher than
1.96) gave their responses on whether Enugu State civil service
workers had been able to apply moral ethics, efficiency and
effectiveness in serving the public. This showed that the respondents
significantly disagreed that Enugu State civil service workers had
applied moral ethics, efficiency and effectiveness in their dealings
with the public.
Those interviewed on poor government budget responded with
an average mean of 4.0 with a probability as low as 0.00 (lower than
0.05) and a high t-statistics of about 68.9 (higher than 1.96). This
showed that respondents significantly agreed that Enugu State
government’s poor budgetary allocations to civil service do not
encourage performance of workers.
On the overall note for the hindrances that impeded the
measures that were employed by Enugu State civil service, the mean
average of respondents were 3.52 with a probability as low as 0.00
(lower than 0.05) and a high t-statistics of about 140.1 (higher than
1.96). This showed that the respondents significantly agreed on the
general note that corrupt practices and neglect by the political office
holders impeded performance management of Enugu State civil
service.
131
4.2 Findings
The following findings were made based on the responses
from the interview questions administered to our respondents and
documentary evidences collected.
i) Enugu State civil servants were not rewarded based on their
performances rather through connection with the power that
be.
ii) The Annual Performance Evaluation Report (APER) scores
that should have given clear insight into the performance of
workers were subjective hence promotions/rewards were not
subjected to performance.
iii) It was also found that Enugu State civil service staff were not
paid equal salaries as their other counterparts in other
States, hence their internal acrimonies towards their
employers.
iv) Enugu State civil service workers lacked such basic social
amenities such as medical services, canteen facilities, and
motor vehicle loans etc. which enable workers to excel in their
place of work.
v) All efforts by Enugu State Government through the
establishment of the Service Compact (SERVICOM) and
Performance Improvement Bureau (PIB) and the 4-point
132
Agenda of the government had not engendered performance of
the civil service in Enugu State.
vi) We discovered that promotion of worker was not strictly on
high performance but rather majority got their promotion
because they are connected with the power that be.
vii) Enugu State civil service had not put in motion an
appropriate performance management measuring apparatus
for which workers remunerations were linked to.
viii) The training and retraining of Enugu State civil servants were
not adequate. Those workers that had the opportunity to
attend some kind of retraining courses were not motivated
after such ventures.
ix) The disciplinary measures of Enugu State civil servants were
segregated upon as those who had ‘godfathers’ were
overlooked when they err and those who did not have are
punished even for a slight offence.
x) The findings also showed that the budgetary allocation for
Enugu state civil servants were relatively low compared with
what was given to security and other aspects of the economy.
The respondents agreed that senior officers of Enugu State
civil servants were not promoted based on their performances.
Some of the civil servants reached the apex of their position as a
result of having political connection with those in power. This really
133
occurred when such a worker was a member of the political party in
power.
Over 90% of the workers interviewed agreed that Enugu State
civil service workers received low salaries than their counterparts in
other States of the Federation. The workers affirmed that the State
was yet to implement the payment of minimum wage by the Federal
government of Nigeria.
Also, over 80% of the workers interviewed confirmed that the
civil servants lacked serious fringe benefits that would have aided
them in carrying out their duties successfully. These included lack
of sufficient working materials. Some offices lacked tables, chairs,
accommodations and office stationeries (see Table 12). Workers’
interviewed showed that they did not have medical services. This
resulted that when one was sick such a person went out of the
work premises to look for medical attention. Also, it was discovered
that the workers do not have canteen facilities and workers went
out of their working environments to get what they eat and at times
does not come back to their offices. Majority of the respondents to
the above questions were in line with the views expressed by most
oral respondents. A respondent at the Enugu State Civil Service
Commission, stated that the physical working environment
frustrates even the most willing worker. According to him, most
offices are overcrowded. Senior officers shared offices and general
134
offices looked like restaurants. Apart from the problem of office
accommodations, their working environment was very dirty. Most
cleaners were not given soap and detergents to clean the offices.
There was acute water scarcity in most offices. All these had
contributed to poor environmental conditions in most offices.
We discovered from those interviewed that there was a bitter
and acrimonious struggle amongst various leaders in the state as a
result of zonal politics by the State government. There was mutual
suspicion among zonal leaders n the State, in matters regarding
appointment of any sort. This development had led to the
bastardization and politicization of Enugu State civil service which
affected adversely, the moral of the State civil service workers.
From the pattern of response by the respondents, there was
enough evidence that politicians and influential figures interfered
with the activities of the civil service of the State.
In Enugu civil service, the spoil system had come in the full
swing. Whenever advertisements for positions in the civil service
were placed, names file out from the government house. Unqualified
but well connected candidates were usually given preferences.
Those who did not go through the politicians or did not have “god
fathers” found it difficult securing jobs in the State. The Civil
Service Commission that were responsible for all matters
135
concerning civil servants in the State were rendered powerless and
almost irrelevant.
The responses of the majority of the respondents were in
tandem with what we discovered from both oral respondents and
facts on the ground. There was high degree of favoritism and
nepotism in matters of discipline, transfer and dismissal of civil
servants in Enugu State due to zonal/sectional politics in the State.
As a result of politics in the State disciplinary measures are
administered differently on how well one is connected melodrama
“ima mmadu” some offices were filed not on the basis of merit but
on the basis of other extraneous criteria. Majority of teachers
posted to post-primary schools in 2012 were less educated.
Principals complained that majority of them do not know the
rudiments of teaching. Majority were appointed as a result of being
affiliated with party that is in power. Under the conditions of “ima
mmadu” or cognitive melodrama, distinguishing characteristics of
bureaucracy were flagrantly abused. The hierarchical structure was
turned upside down, while lines of authority run criss-cross one
another depending on the relevant source of patronage.
136
CHAPTER FIVE
DISCUSSION
5.1 Performance Management in Enugu State civil service is significantly enhanced through training, retraining of staff, promotions, and high salaries and granting of car and housing loans.
From the study, the mean average of respondents showed that
1.76 with a probability as low as 0.00 (lower than 0.05) civil service
workers do not have clear view of what their jobs entails and no
measuring apparatus by their superiors to show clearly if they had
been able to achieve the goals they were meant to achieve. Where
there were no clear goals set and no measuring instruments put in
place to determine workers achievement, the performance
management goals are defeated.
It was important to State that our study showed Enugu State
had not implemented federal government directives on the full
payment of N18,000 as a minimum wage to its workers. Our
(Appendix 8) showed that a study in Enugu State which required
workers to rank in order of importance factors that will motivate
them to work. In the table, improved welfare package took first and
salary/wages took second. In Uganda for example, Robinson (2006:
20) notes that “failure to make progress on pay reform for the vast
majority of public servants contributed to declining motivation.
137
The problem of high payment of salaries to workers in the
State civil service was also compounded by Enugu State having no
regulatory body that are in charge of mediating between the
government and workers in case of rifts because of increments. This
scenario had resulted to series of strikes and counter strikes which
had aided non-performance.
Our findings showed that Enugu State civil service workers
lacked the training needed for full implementation of the
performance management system.
The study also showed that workers of Enugu State civil
service are not motivated highly. Information from conference
papers, workers ranked in order of importance, factors that
motivated them to work. The highest ranked motivator was
improved welfare package which included: provision of loan scheme
for housing, cars, increased furniture allowances, provision of staff
bus and staff quarters, children education allowance, staff
recreation centre, free medical, self development schemes, dress
allowance and miscellaneous allowance to cover social/recreation
club membership.
In supporting our findings, the African Association for Public
Administration and Management during their 28th ‘AAPAM’ Annual
Roundtable Conference, Arusha, Tanzania between 4th to 8th
December, 2006 made a discovery. The theme for discussion was
138
“Towards an effective delivery of public services in Africa”. They
came out with fact that eighty-five (85%) percent of respondents
said that the reason why they work was to earn a living. The high
response rate attributed to the need to earn a living of 85% points to
the fact that workers in the public service attaches great importance
to ‘money’, thus policy formulators must take cognizance of this in
deciding public servant motivational/package.
Also, the rating has great implication for goal attainment,
since the over-whelming majority says they work to earn a living,
balancing the objectives of government (i.e. provision of services to
the citizenry) with reasons for working becomes paramount.
The findings supported our prepositions that in addition to
improved salary package, the workers need improved welfare
package. The paper indicated that although salary increment is a
necessary condition, it is not a sufficient condition for the
attainment of improved performance albeit improved service delivery
(see Table 12).
The study clearly showed that Enugu State had not performed
creditably in motivating her teams of workers. Hofstede (2001),
noted that individuals from different cultural backgrounds are likely
to be more sensitive to some types of motivations and to react
somewhat differently to external interventions. He added that
different social norms, the public service in low-income countries
139
e.g. Enugu as a State in particular faces a series of characteristics
and constraints that may impede the use or reduce the power of
some kinds of motivators that had proved effective in other settings.
Such constraints might for instance be:
− The lack and/or poor quality of performance information;
− Very low wages that may result in civil servants feeling to
be unfairly treated;
− Thus decreasing their loyalty to the organization, this may
justify “sabotage” behaviours.
In Malaysia, for example, a New Remuneration System had
been established which ensures that incentive packages are
regularly given to the workers. Still and, in particular, personal
achievements are recognized and rewarded. In Enugu State,
workers had often struggled with the government before they are
paid government minimum wage increases. The Enugu State had
not completed the payment of the federal government directives on
the payments of the minimum wage to civil servants in the country.
Instead of the Enugu State government negotiation with the Union
leaders, they intimidated and threatened them. (see Table 12).
140
Table 14: Field Data on evaluation of training, retraining, promotions, housing/car loans, motivation and competitive pay
S/N Civil Service Rule No. Reference No.
of Circular Subject Matter Remarks
1. Training/Retraining Public Service Rule No. 100225: Officers shall be granted in-service training for a period not exceeding two years with normal emoluments, allowances and course fees. The period of study shall count towards gratuity and pension.
ENS/HOS/TD/ 119/ XXV/II/T.I/296 of 8/02/2008
Study leave with or without pay. Officers for study leave with pay or without pay are warned not to depart for their studies without signing their bond. If they fail to sign they will be regarded as abandoning their duty posts without permission as per Public Service Rules No. 04412. Absence without leave.
2. Study leave No. 100227: Officers are granted study leave without pay where the proposed courses of study are not contained in the approved training proposals for their Ministries/ Extra-Ministerial office.
ENS/HOS/TD/682/ T.I/157 of 20/02/08 ENS/HOS/ED/SR/ 64/I/T/53 of 17/10/08 ENS/HOS/TD/102/ T.1/343 of 16/7/09 ENS/HOS/TD/102/ T.1/430 of 24/97/09 ENS/HOS/X.III/1/ 349 of 10/12/2009 MST/AD/081/270 of 18th May, 2005
Train of Chief Typists and other cadres of Typists preparatory for conversion to data processing Officers/ Assistant cadres. Computer training in the civil service. Commencement of year 2009 Advanced/Middle Financial and Administrative Management courses. Postponement of date of Commencement of year 2009 Advanced/Middle Financial and Administrative Management Courses. Circulars could not reach distant Local Government Areas who are expected to participate. Assessing the ICT needs of Enugu State Government. Notice of commencement of Computer Literacy Training programme. Ministry of Science and Technology to organize a programme of Computer literacy Training (CLT) for the benefit of Enugu State Civil/Public servants.
ENS/HOS/TD/119/ XXV/111 of 06/03/2001
Suspension of study leaves with pay. Ministries and Non-Ministerial Departments are accordingly
141
advised to stop entertaining any application for study leave with pay.
No. 040201 Increment is a predetermined amount added to the annual emolument of an officer every calendar year.
ENS/HOS/X.21/1/ 149 of 21/03/2001 ENS/HOS/X.21/11/ 151 of 15th Oct., 2007 ENS/HOS/X.2/II/206 of 4/02/2009 ENS/CSC/AD/137/VII/88 of 12th May, 2000. ENS/HOS/X.21/II/214 ENS/HOS/X.21/I/I/ 103 of 23/6/2000 ENS/HOS/X.21/II/201 of 9th Sept., 2008
Lifting of Embargo on promotions. Promotion interview of the Re-engaged workers. All Ministries/Departments are invited to commence and complete actions on the promotion of their re-engaged workers to bring them at par with their colleagues. Conduct of 2007 promotion Examinations. Conditions for promotion of officers in some Senior Management position in the State civil service. Apart from attaining 3 year maturity period, are required to have attended certain courses as spelt out in the Scheme of service. Appointment of desk officers National Housing Fund Scheme Approval of the release by government the sum of N22,608,015.87, for the unremitted deductions made from the workers in Enugu State being their contributions towards the National Housing Fund Scheme. Payment of minimum wage of N6,000.00 Revision of the minimum basic salary. His Excellency the Governor of Enugu State has, therefore, raised the minimum gross salary in Enugu State to N8,675.00. Evidence at Ministry of Establishment showed that the minimum wage of civil servants in Enugu Sate had not been resolved.
Compulsory occupation of government quarters No. 14102
ENS/SSG/M.328/172 of 9th July 2007
Verification of occupants of Enugu State government quarters/public buildings. This was done to ensure the quarters are not monetized/leased to non-occupants of its quarters in Enugu State.
142
ENS/HOS/X.II/VI/43 of 31/08/2009 ENS/HOS/X.221/II/141 of 6/02/08 ENS/HOS/AD/CIR/064/17 of 4/2/09 African Association for Public Administration and Management (AAPAM) 4th-8th Dec. 2006. Motivating the public service for improved service delivery.
Monetization of Fringe Benefits in the public service of Enugu State. The sale of Staff Quarters to public servants. Re-sale of Staff Quarters to deserving public servants under the monetization programme of Enugu State Government. Urgent need to rehabilitate Toilet facilities in Ministries and Departments. Observation showed that most toilets and urinary facilities in Ministries and Departments are in deplorable state. There is no water supply and workers have no other alternative than to use bush method. All Ministries and Departments were mandated to repair and maintain their toilet facilities and broken pipes to ensure healthy environment. What constitute the workers motivating factors for improved service delivery in Enugu State in order of priority. The findings showed: a) Earn a living 85%; b) Contribute to societal development 50%; c) Achieve self actualization (fulfill an aspiration/ambition ) 25%; d) Meet family responsibility/ expectations 20%. Rank in order of importance factors that will motivate workers to work. a) Improved welfare package, 43.4 b) Salary/wages, 28.7 c)Good and stimulating working
environment, 18 d) Enhanced Training and Re-training
18 e) Responsibility and challenge 10.0 f) Efficient promotion process 9.5 g) Good Interpersonal Relationships
9.5 h) Timely payment of salary 8.6 i) Availability of working materials 7.4 j) Enhanced pension scheme 7.4 k) Job security 7.4
143
Public Service Rule No. 030201
l) Organizational goodwill 5.6 m) Recognition of sills 5.6 n) Involvement in Decision making 5.6 o) Superior Leadership style 5.6 p) Realistic succession plan 5.6 q) Annual leave 5.6 List of factors that can hamper Improved Service Delivery
General inefficiency consists of a series of omissions or incompetence the cumulative effect of which shows that the officer is not capable of discharging efficiently the duties of the office he holds.
a) Poor remuneration b) Inadequate motivation c) Lack of training and re-training d) Unconducive working
environment e) Corruption and mismanagement f) Inadequate working tools g) Lack of political will h) Red-tapes l) Policy consistency j) Poor leadership style k) Slow budget implementation l) Non-commitment m) Bad time management n) Mediocrity o) Poor promotion system p) Poor attitude and wrong values.
Source: Office of the Head of Service,
Establishments, Pensions and Training Bureau, Enugu, March, 2010.
144
Table 15: SUMMARY OF RESULTS OF PILOT PERFORMANCE EVALUATION TESTING ON FOUR SELECTED MINISTRIES, DEPARTMENTS/AGENCIES IN ENUGU STATE
Trial Tests Result Summary (in %)
Assessed Attributes Enugu State Ministries/Departments & Agencies
Education ESWAMA SSG HRDPR Set standards 49 59 46 83 Quality Service Delivery 9.3 42 16.7 45 HR Components 53 65 63.3 56 Fiscal Management 0 15 55 33
Impact & Accountability 35 43 40 85 Sustainability 55 42 80 70
Source: State and Local Government Programme, Consultant’s Report Number X, Enugu State, May 2007.
Table 15 shows the summary of the scores of the Ministries,
Departments and Agencies (MDAs) selected for the trial audit
process.
(1) The results show that the Ministry of Human Resource
Development and Poverty Reduction recorded the highest
performance under the “Set Standard criterion” with a score of
83% (Extremely Good) while it scored 33% (Poor) under the
“Fiscal Management criterion”.
(2) The Ministry of Education recorded 53% under the HR
components, with a 0% under the Fiscal Management
criterion. The poor score in the fiscal management category is
not unconnected with poor fiscal management policy
framework in the Ministry.
145
(3) The Office of the SSG recorded 16.7% under the Qualitative
Service Delivery category, while it recorded 55% and 40%
respectively under the Fiscal Management and Impact and
Accountability categories.
(4) ESWAMA recorded 59% in the set standards criterion and
15% in the Fiscal Management criterion. The result of 42%
recorded by ESWAMA in the Quality Service Delivery criterion
is due largely to the support it got from collaborations with
the State and Local Government Programme.
5.2 The Effect of Employee appraisal in performance
management of Enugu State civil service.
It was discovered that Enugu State workers appraisals
were based on Annual Performance Evaluation Report (APER). This
indicated that workers were appraised at the end of the year. There
was no apparatus that gave clearly to workers all about and what
should be used to measure it. According to Ministry of Civil Service
and Administrative Reforms, Republic of Mauritius, a typical
individual appraisal should be an ongoing interactive process
between appraisee and appraiser, comprising:
− Preparing work plan and setting performance expectations
derived from section/unit annual plan.
− It also involves entering into performance agreement after
discussion.
146
The performance of job holders must be assessed by taking
into account of both ‘what’ they have achieved, and ‘how’ they have
achieved it. Managers should make a judgement over whether
objectives have been met or exceeded. The implication of not taking
the rigours of evaluating, coaching, counseling workers on their
performance had brought about low performance of workers.
According to Cole (2002), a situation where openness and
participation are encouraged, any system will be discussed first with
those involved, with the result that appraisals are more likely to be
joint problem-solving affairs than a ‘calling to account’ by a
superior. The traditional performance appraisals of superiors to
subordinates are still used and this does not encourage feedback
which is highly needed for the New Management System.
It is important to note the focus of the appraisal on the job or
the person. The Enugu State appraisal focuses on the jobholder.
The problem then emanates that the appraisal form now will focus
on the worker rather than the job. This makes it difficult to
determine the workers success in achieving results. It is important
to stress that supervisors too are not abreast with the new
performance management appraisal hence they could not use the
appraisal effectively to determine if workers are meeting up with the
performance goals. It is important to state that if individual/team
performance goals are not determined, it would be very difficult to
147
achieve organizational goals which performance management
system is poised to achieve (see Table 16).
Table 16: Field Data on obstacles associated with workers’ performance management appraisal
S/N Civil Service Rule No.
Reference Nos. of Circulars
Subject Matter
Annual Performance Report and Certificate of Service. No. 050102. It is essential for the general efficiency of the service that annual report on officers shall be detailed and candid.
ENS/HOS/AD/ 14/7 ENS/HOS/SWD/I/162 of 11th March 2008 ENS/CSC/S.101/V/108 Fed. Gen. 79 Enugu State Ministry of Establishment Training Guide 2013.
The Enugu State Federal character commission embarked on a nationwide State Manpower survey. Assessment and manpower development. The Enugu State Government has concluded arrangement to access the strength of personnel, for sustainable manpower development, especially within the lower cadre of civil service. Circular for 2005 public Service Examination Interested serving officers who are in possession, of the basic qualifications required for Admission and wish to participate in the examination will be required. This is the Confidential Annual Performance evaluation report. The period covered January to December of evaluating year. One States his or her job description. Such information include: State below in order of importance the main duties performed during period of report. Workers are assessed by ratings A – E without any tangible figure. 2. Superior officers have no key point indicators to assess their workers to know whether they covered their job description. (1) Workers to be assessed bi-annually starting from 2015 fiscal year. (2) Superior officers to assess their junior workers on key point’s indicators well stated. (3) Workers to be critically assessed by their bosses to ascertain whether they have achieved the key point indicators. Their promotions will be based on the result of their assessment.
Source: Office of the Head of Service, Establishments, Pensions and Enugu.
148
5.3 The hindrances that impede on the measures employed by
Enugu State government to engender performance management of civil service.
We observed that majority of Enugu State civil servants are
rewarded not based on their hard work but as patronage for their
political affiliations and other similar indices of brotherhood. The
implication of this gesture is that it creates suspicion among the
workers. The work environment becomes a fertile ground for non-
chalant attitudes by workers. It gives opportunity for workers to be
aloof in their own organization and this cannot create room for high
performance.
We also observed that workers who are hard working and
obedient to the authority tend to be discouraged by the recalcitrant
ones who are backed by those in high positions. Also we discovered
that corruption of workers in the civil service brought about low
productivity. Also our research discovered that majority of the
recruited workers are not through merit but on political patronage.
This phenomenon tends to bring about low performance.
Also the dichotomy experienced in Enugu State civil service does
not encourage high performance. According to Mr. Ugwu Ambrose,
the zonal politics employed by government of Enugu State had affected
adversely the morale of civil servants in the State. There is acrimonious
struggle and mutual suspicion among various leaders in the State, in
149
matters regarding appointments, recruitment and promotion in the
State civil service.
Our respondents revealed that majority of the workers argued
that there is low government budgetary allocation to civil servants.
Their responses are in line with the views of oral respondents.
According to most workers, they do more work and receive less pay.
They complained that they are grossly under paid. This inadequate
payment and some other essential incentives they argued, contributed
in facilitating corruption and poor work behaviour.
Our oral proponents indicated in support of our interview
questions that there existed corruption in Enugu State civil service. In
2007/2008, in the Education Ministry, many prospective principals
paid up to N200,000.00 (two hundred thousand Naira) only and
N250,000.00 (two hundred and fifty Naira) in order to be made
principals. In 2009, there was merging and demerging of secondary
schools in Enugu State Post-Primary Schools. It was a field day for the
Education high ranking officers who capitalized on that demerging to
receive money from prospective principals. Later in 2010/2011, the
demerging of schools was stopped.
During the time of demerging the schools, there were rampant
illegal levies in schools by principals to cover what they spent. Also, it
brought about increase in examination malpractices as the principals
colluded with supervisors to achieve their evil desires. It is very
150
unfortunate that many senior officers from the headquarters visit some
schools on routine supervision. Those schools or institutions spend
their last kobo in order to win the hearts of their so-called ‘august
visitors’. The visit to schools or institutions where these officers are
manning becomes rituals and in a continuous manner they forgot their
focus of putting rights what is wrong in the institutions under them.
It is also noted through our oral findings that majority of the
contracts being executed are done shabbily as far as the officers in
charge have claimed their 10% kick back. Sometimes some hooks are
printed which may or may not be relevant to an institution but, such
institution is forced to pay for such materials without questioning.
Respondents during African Association for Public
Administration and Management Annual Conference (2006) stated the
following as some factors that can limit the ability of the public
servants to achieve improved service delivery.
(a) Poor remuneration.
(b) Inadequate motivation
(c) Lack of training and retraining.
(d) Unconducive working environment.
(e) Corruption and mismanagement
(f) Inadequate working tools.
(g) Lack of political will.
(h) Red-tapism.
151
(i) Policy inconsistency.
(j) Poor leadership state.
(k) Slow budget implementation.
(l) Non-commitment
(m) Bad time management
(n) Non-existence of state of the art technology.
(o) Mediocrity.
(p) Poor promotion system,
(q) Poor attitude and wrong values (see Table 12).
Our study also showed that civil service had been politicized to
the extent that most top officials openly supported the government of
the day. This had civil servant at times to deviate from civil service
rules in order to please their ‘political’ masters. Eme and Ugwu (2011)
noted that … ‘the principle of recruitment and other spoils system
techniques have sacrificed efficiency and effectiveness in the Nigerian
public service. Subsequently observation by Mohammed Salisu posited
that ‘considerate political interference in the process of personnel
administration had led to improper delegation of power, ineffective
supervision and corruption. Thus, result in official apathy that had so
far culminated into unauthorized and unreasonable absenteeism,
lateness and idleness and, notably, poor workmanship’ (Salisu, 2001:
27).
152
The Filipino Civil Service Commission (CSC) runs an annual
Honour Awards Programme (HAP) that recognizes government officials
and employees who have displayed outstanding work performance. The
conferment of honour awards aims to motivate or inspire government
employees to improve the quality of their performance and instill
deeper involvement in public service.
The longer that poor performance is allowed to hanger, the
greater the problem for the individuals and organization until it is
finally tackled.
The politicians in Enugu State especially during election periods
increase the number of civil servants for patronage reasons. The
workers recruited were weakly motivated and unwilling to put forth
effort. The study showed that anti-corruption measures put in place to
regulate both workers excesses sometimes are used by government to
harm their political opponents. The anti-corruptions bodies are at
times thrown into the same environment/problems as other public
bodies. The workers had the notion that they are unfairly treated and
then corruption legitimized.
Rosemary O.A. et al. (2014) opined that to ensure that manpower
is optimally deployed; there should be effective monitoring system of
the productivity of individual workers to ensure high productivity of
the whole workforce. The initial recruitment and placement of works
should be on the bases of skills and competence.
153
The American Society for Public Administration Code of ethics
highly recommended in their code of conduct that workers should
establish procedures that promote ethical behaviour and hold
individuals and organizations accountable for their conduct.
The study showed that the State had not given robust budgetary
allocations for the civil service and this had hindered performance in
the civil service. The American Code of conduct had it that workers
should prevent all forms of mismanagement of public funds by
establishing and maintaining strong fiscal and management controls,
and by supporting audits and investigative activities. In Singapore, civil
service salaries are commensurate with those offered by the private
sector. Significant social prestige attaches to employment in the
higher ranks of the civil service and senior staff is richly rewarded for
its efforts, with civil service salaries being amongst the highest in the
world. This was made possible through robust budgetary allocation by
government.
154
Table 17: Field data on the hindrances that impede on the measures employed by Enugu State government to engender performance management of civil service.
Civil Service Rule Circular Ref. No. Subject Matter Section 2 – Misconduct No. 04201 (i) Willful act or omission or general misconduct to the scandal of the public or to the prejudice of discipline and proper administration of the Government e.g. corruption, dishonesty, drunkenness, false claims against Government etc.
ENS/HOS/X.21/ I/122 of 10th August, 2000 ENS/HOS/C.21 1/218 of divulg- ing of official secrets.
Dealing with misconduct, indiscipline and intransigency in the service. The Head of Service, Enugu State observed that some civil servants continued to engage in various acts of misconduct and exhibited gross incompetence in the exercise of their official responsibilities. He warned them that no civil servant or public servant had any right to his/her salary or wage without giving adequate service in return. Various Heads of Administration were to be held responsible for any lapse(s), omission or non-rendition of the required returns of defaulters. Divulging of official secrets. The Head of Service Engr. R.N. Okenwa, Mni observed with that public servants, including Senior Officers, had formed the habit of divulging secret /official/ documents in clear breach of the official secrets act and indeed public service rules. This development embarrassment to the State Government. Severe disciplinary action, which may include dismissal from the service, would be visited on any public servant who breaches any of the above listed sections.
155
ENS/HOS/X.21/
1/240 of July 2nd 2002 ENS/HOS/X.21/ Vol.II/142 of 17 Sept. 2007 Misconduct in Civil Service. ENS/HOS/X.21/ II/210 of 4th March 2009 Manipulated circular on Health Technicians
Non-compliance with posting orders by Ministries and extra-ministerial Departments. The Head of Service Engr. R. N. Okenwa Mni observed that since the introduction of the Pooling System in 1996, the deployment of Pool Officers by his office has been constrained sometimes unnecessary and frivolous protests from Ministries/Non-Ministerial Department. The Enugu State Head of Service A. C. Edoga sent a circular to draw the attention of all public servants in Enugu State to the provisions of Chapter 4 Section 3 and 4 of the Public Service Rules with respect to Section 4 Paragraph 04401 (i) identifies
� “Willful act of omission or general misconduct to the scandal of the public.
� Membership of secret societies
� Falsification of records � Fowl language � Insubordination.
Manipulation of content of Establishment circular No. ENS/SSG/ED/SR/57/II/354 of 10/09/92. The Head of service A. C. Edoga called on al the Heads of Ministries, Departments and Agencies, the Local Government Service Commission to disregard mutilated section and suspend any further action on its implementation. The manipulated section was fraudulently added to the original circular and many serving staff had fallen victim to the cheap and questionable
156
ENS/HOS/X.21/ 343 of 5th October 2009 Lateness to work. UBSS/09/Vol.II/ 96 of 3/7/2012
weekend programme at Oji River and Nsukka. Equally Enugu State Government had been defrauded of huge sums of money on the pretext of this programme and enhancement of staff. The Head of Service, had observed with dismay that most workers of the Civil/Public Service formed the habit of coming to work very late. In most days of the week, workers are found strolling into their offices as late as 10.00 am. In spite of rules and regulations put in place. Defraudment of government money in my school for the attention of the Chief Internal Auditor. A Bursar of a school in Nsukka Zone capitalized on the principal’s major surgical operation and defrauded the Senior Secondary Class students the sum of N53,000 (Fifty three thousand Naira). The bursar also forged the principal’s signature and withdrew the sum of N73,000 from the School Account. The total came to N126,000 being the amount the bursar defrauded.
Source: Office of the Head of Service, Establishments, Pensions and Training Bureau, Enugu, March, 2010.
157
Table 18: Field data on the measures that can be employed to engender performance management in Enugu Sate civil service. Civil service rule on measures for performance
Circular Reference numbers
Subject Matters
Public service Rules (2010) No. 150102 the recipient of an award must have been considered as best on the basis on the basis of out-standing performance of duties and exemplary conduct during the year
ENS/HOS/X.21/1/203 of 3rd October 2008
Computer training in the civil service.
Public Service Rules No. ENS/HOS/ED/SR/64/1/T/53 of 17th October, 2008
Computer Training in the civil service
150103 gives each ministry or extra-ministerial office authority to
ENS/HOS/X.21/vol.II/206 of 4th February 2009
Conduct of 2007 promotion Examinations. This helps in staff promotion and development
award to deserving officers annually
ENS/HOS/X.21/Vol.II/209 of 24th February 2009
Approval of elongation of the salary table of graduate primary school teachers from salary grade level 14 to 16.
ENS/HOS/TO/102/T.I/343 of July 16th 2009
Commencement of year 2009 Advanced/middle financial and administrative management courses.
No. 150104 states that the awards may be in the form of medals, gifts of cash or king
ENS/HOS/X.21/11/337 of 28th July 2009
Forwarding of Nominal roll of officers to code of conduct Bureau for the purpose of Asset Declaration. This mitigates against workers practices of unlawful acquisition of properties.
No. 150106 states that any officer who in the course of his official duties, carries out a
ENS/HOS/X.III.226 of 11th December, 2009
His Excellency The Governor Of Enugu State, Barr. Sullivan I.
158
unique act or, in perilous circumstances, secures the safety of human life or property may also be considered for an award as the occasion warrants.
Chime Granted Approval For The Information Communication Technology Enugu to assess the ICT needs of all the Ministries/Departments and Agencies in Enugu State.
ENS/CSC/AD/114A
/1/161 of 24th April, 2008
Conversion to administrative officer’s cadre. Examination is intended to test officer’s knowledge of Public Service Rules, Civil Service Reforms, Financial Instructions and other aspects of civil service Administration.
Public Service Rules No. 150107 states that an officer who has served continuously for a minimum of 15, 25, 35 years with good service records shall be eligible for a certificate of merit and award in kind commensurate with his length of services.
ENS/CSC/AD/137/VII/192
Financial executive date of promotion of re-engaged workers. This boosted the morale of workers who were unjustifiably retrenched from the service
ENS/CSC/S.276/1/S.38/17 of 27th October 2009
2008 promotion examinations for officers on grade levels of and above.
Performance Audit and Public information (PIB) by Femi Badejo May, 2007 funded by state and Local Government Programme (SLGP) Enugu.
The introduction of the performance audit trial template is meant to systematize the operations of performance Improvement Bureau in the area of performance audit management in line with known best practices. The
159
consultancy for the performance audit template design and trial Departments and Agencies in Enugu State is funded by state and Local Government Programme (SLGP) and is aimed primarily at adding significant efficiency and modernization to the operations of Performance Improvement Bureau (PIB) in the discharge of performance audit and related task amongst MDAs in Enugu State, Nigeria.
A guide to Enugu State Service and Performance Improvement Bureau Service Standards and Operations July 2012 Printed by Government PRINTER, ENUGU
At the Federal Public Service, the roadmap for SERVICOM was published in 2004. its logo has an inscription that reads “you have the right to be served right”. His Excellency-Sullivan I. Chime – A NEW PLEDGE TO DO MORE. Inaugural Address on the Occasion of his swearing in for 2nd term as Governor, Enugu State – 29th May 2011.
Source: Office of the Governor, Enugu SERVICOM AND PIB. July 2012. The above table (18) on the measures that was put in place to
engender performance management in Enugu State Civil service
made some revelations. The Governor Nnamani’s policy statement
160
on the civil service in his inauguration address of 29th May, 1999
showed that he revoked the non-indigene policy of the previous
administrations. He denounced the policy as retrogressive and
capable of isolating the State from the other States of the
Federation.
The new administration of Governor Nnamani also set up
Paul-Egbogu Reform Committee with the following terms of
reference:-
(i) To study the Federal White Paper on Ayida Panel Report Well as the State Committee’s (Udeagbala Committee) Recommendations based on the Ayida Report in Enugu State and make recommendations;
(ii) To identify and review the present structure of the State Public Service; (iii) To identify and review all Government Ministries, Commissions, Agencies, Parastatals and other Government Bodies (excluding Schools and other Educational Institutions), showing in each case:
- the structure - the activities and functions; and - the staff strength (according to ranking of
or designation);
(iv) To advise Government on the expected output (in Both quality and quantity terms) and productivity level of the Public Service; (v) To determine the current actual productivity level of the Service; (vi) To conduct a skills and capability audit of the Public Service with a view to identifying the Relevant training needs; (vii) The review the current bureaucratic processes in the Public Service and recommend to Government ways to Expedite the decision-making process, without
161
Compromising quality of decisions reached; (viii) To recommend to Government a New Public Service Structure that would be run effectively and efficiently, employing the optimal number
of staff; (ix) To recommend to Government ways and parameter for evaluating Civil Service productivity both at the general and individual levels; (x) To recommend to Government appropriate Compensation and incentive necessary to Remunerate and motivate the Public Service employees. (xi) To conduct any other relevant inquiries with performance of the Public Service and recommend solution for combating the anti- social practice.
The Governor Nnamani’s administration had repeatedly
expressed worries over the high monthly wage bill occasioned by
alleged over-bloated workforce, saying that a situation where
90 per cent of the State income is spent on salaries could not be
acceptable. On the issue of the Federal Government minimum
wage increase across the nation, the Enugu State workers
were still grappling with the issue of disengagement of their
staff; then another crisis was brewing over the new minimum
wage. Negotiation between the State Government and labour
over the minimum wage started in June 2000. Government side
was led by the Deputy Governor Chief Okechukwu Itanyi. It was
deadlocked. Revised minimum wage of N18,000 during Governor
162
Chime’s regime was also deadlocked.
Also Governor Nnamani’s administration inaugurated a
Ten-man Committee on May 4, 1999 to formulate a New Water
Vision (NWV) that would help us tackles the water problem in
Enugu State. The Committee had since submitted its report
and Government were making all efforts in implementing
all its recommendations. The governor also recommended new
Strategies for water supply to Enugu metropolis which he said
That government would ensure their actualization.
The highlights of the strategies are:
(1) Rehabilitation the electro-mechanical systems at Ajali And communication systems to make the scheme Deliver at least 66,000m3/day. (2) Rehabilitating all the twelve boreholes as Crash Programme Boreholes and increasing the number of boreholes to twenty and piping it to the twin Tank directly. This will ensure an additional 48,000m3/day and acting as a standby to Ajalli System during maintenance; (3) Rehabilitating completely the Iva Headwork’s to Bring in an additional 20,000m3/day. (4) Providing two new mini water schemes at Emene And Abakpa-Nike for the tail-end dwellers of Emene, Abakpa-Nike and Trans-Ekulu 14,000m3/ Day is expected from these two schemes; (5) Reconstruction of the Akwuke water scheme to Increase the yield to up to 7,00m3/day.(etc.) He assured the people of Enugu State that they are committed to
the achievement of the set targets. The Governor also stated the
163
government readiness to sustain the successes already achieved under
UNICEH-assisted programmes. Such UNICEF supported activities
include: health programmes, nutrition, basic education, advocacy and
communication, water and environmental sanitation, planning,
monitoring and evaluation.
The Governor Nnamani’s administration made all frantic efforts
to use available resources within their limits to make a difference in
the lives of the people of Enugu State. His predecessor Governor
Chime took over the mantle of leadership of Enugu in May 2011. He
stated in his inaugural address of 29th May, 2011 that his
administration was determined to establish in concrete terms the
linkage between the service policies that addressed the period between
29th May 2007 administration and the same policies institutionalizing
best practices in service delivery and good governance from May, 2011.
Governor Chime stated that service to the citizens should not be “a
favour” buy “their right”. This unequivocally makes it clear that the
citizens have inalienable entitlement to services provided by Enugu
State Government. The services are primarily theirs. Government
employees (public servants) are caretakers of the services they provide.
As caretakers, they must by the tenets of Enugu State service delivery
policy give out the services to the citizens, timely and in accordance
with Government approved standards and quality without condition.
164
Furthermore, the governor stressed that to meet up with these
key indicators of model services of Enugu State Government, the
government stated that the following services had been put in place.
(a) Ensuring that all public servants receive their annual leave allowance on commencement of leave.
(b) Payment of salary of public servants on or before 25th of
every month.
(c) Ensuring that promotions are up to date.
(d) Massive development in infrastructure.
(e) Free education to JSS III. (f) Sustenance of none interference in Local Government income. To ensure compliance of performance of workers to ensure
service delivery, Service Charter were given to different Ministries,
Departments and Agencies in the State. It was also expected that the
SERVICOM and Performance Improvement Bureau Unit officers in
Ministries, Departments and Agencies establish direct link with Hon.
Commissioners, Permanent Secretaries and other Chief Executives,
will have easier approach to step up reforms in their various
Ministries, Departments and Agencies. The SERVICOM and
Performance Improvement Bureau will also extend Enugu State service
delivery policy and vision to more Government establishments
including tertiary, secondary and primary institutions through the
appropriate channels. The intended end product of these actions is to
165
have an integrated service delivery in all the facets of governance in
Enugu State.
It is important to state that Enugu State government trial test of
some selected Ministries, Departments and Agencies was
commissioned by former Governor Nnamani’s administration on the
22nd of June 2005. The main aim was to regulate service delivery
performance in the state. Deriving also from the Enugu State of
Nigeria Public Service Circulars 1999 – 2009 raised issues of how to
better the civil service in the State. The Enugu State in 2007 gave
performance evaluation against service charters of related
Ministries/Departments/Agencies as an important tool for validating
the claims of related agencies in terms of service delivery on
performance targets and goals.
The following are steps in the measurement and management of
performance as carried out by Enugu State in May 2007 in four
selected Ministries/Departments and Agencies.
The following were the steps in the measurement and
management of performance as carried out by Enugu State on the four
selected Ministries/Departments and Agencies.
(a) Understand the organization and clarify the strategic direction. (b) Develop performance measures
(c) Planning and establishment of targets
(d) Day to day management of the organization
166
(e) Evaluation of manager’s performance.
(f) Management system for organizational performance
(g) Responsibilities, Incentives Training Job descriptions
The design of the parameters for measuring the degree of
relevance of service delivery in overall good governance and optimal
service delivery to its citizenry is to meet individual needs, manage
performance, manage resources, manage feedback and manage
accountability and transparency.
167
CHAPTER SIX
6.0 SUMMARY, RECOMMENDATIONS AND CONCLUSION
6.1 Summary
This study was undertaken to examine the performance
management in the civil service using Enugu State civil service as
the case study. Its primary goal was the examination of the
performance management in Enugu State civil service from 1999 –
2011. But in more specific terms, the study aimed at looking
critically at the steps towards the enhancement of Enugu State civil
service performance management, through training and retraining
of staff, promotions, adequate housing and car loans. It helped us
to identify the measures that were employed to carry out a
performance appraisal measures that could show differentiation in
workers performance ratings, opportunities and compensation from
underperformers. This work also helped us to unravel the measures
that were put in place by Enugu State government to engender
performance management of the civil service and finally
recommended remedies for performance management. The Goal-
setting Theory by Locke and Latham (1990) for performance and
reward management formed the framework of analysis. Arising from
the literature review, the following hypotheses stated in alternative
form guided this study:
168
(a) Performance management in Enugu State civil service was
significantly enhanced through training of staff, promotions,
high salaries, and housing and car loans.
(b) Staff appraisal contributed positively towards workers
performance in Enugu State civil service.
(c) There existed significant measures that could be employed
to engender performance management in Enugu State
civil service.
Deriving from the literature review and the findings made, we
were able to reach a conclusion that:
(a) That the enhancement of performance management in Enugu State
Civil service through training of staff, promotions, adequate
housing and car loans were low and could not boost performance.
(b) The Annual Performance Evaluation Report as practiced in Enugu
State civil service impeded performance management system.
The evaluation measures could not measure the key performance
indicators of the organization to know the best and worst
performers, then nurture the former and rehabilitate and/or
discard the latter.
(c) Certain measures to engender performance in Enugu State Civil
Service were put in a place such as the Guide to Enugu State
SERVICOM and Performance Improvement Bureau for service
169
Standards and operations. Also the Pilot Performance Improvement
Bureau for service standards and operations. Also the Pilot
Performance Evaluation Testing of Ministries, Departments/
Agencies in Enugu were used to determine the level of workers
performance. All these efforts were employed towards the
improvement of workers’ performance, but could not improve
the performance management in Enugu State civil service.
6.2 Recommendations
The process of data presentation and analysis produced some
findings. The result showed that there was low performance
management in Enugu State civil service.
Therefore, this work recommended:
(1) That the Enugu State government should as a matter of
urgency implement in full the Federal Government directives on
the minimum wage increase. This was important as some other
States in the country had implemented theirs and Enugu State
would not be different. It was also crucial as inflation in
Nigerian society was rising everyday to an unimaginable
proportion and these workers had to go for purchases in the
same market with those workers who are well paid and cared
for.
170
(2) Training and re-training of workers was a very crucial issue as
the adage goes on to say that ‘one cannot give what he has not’.
It is very pertinent to state that when competent staff was
brought into an organization, their competence, ingenuity,
skills and professionalism could have great positive impact if
well harnessed. All these contributed to the improvement of
organizational performance.
(3) It was also recommended that Enugu State civil service should
device appraisal apparatus that would be able to measure
workers performance in line with key performance indicators of
their organizations/departments. These would bring to focus
workers that could be nurtured and those to be rehabilitated
and/or discarded.
(4) We recommended that the performance management attempts
by the State Government like the establishment of the
Performance Improvement Bureau Service Standards and
Operations coupled with the 4-point agenda of the Enugu state
government should be strictly adhered to for full
implementation.
(5) We also recommended that Enugu State government should as
a priority increase the State budgetary allocation for civil
service as they stood as the hub where the wheel of the society
rotates. The civil service was a veritable tool for infrastructural
171
development, setting and coordinating State policies and social
service delivery.
(6) It was also highly recommended that political office holders
should not interfere in the affairs of the civil servants as this
would breed disobedience to constituted authorities and
essentially result to low performance as a result of non-
adherence to due processes.
6.3 Conclusion
Finally, the importance of performance management was
crucial in any human endeavour. The success or failure, growth or
decline of any organization undoubtedly depended, to an
appreciable extent on the performance management of such
enterprise. The training and re-training of the civil servants should
be of paramount importance as it would contribute immensely
towards the attainment of goals and mandates for greater
performance. It is of great importance that workers should be highly
motivated through payment of a living wage and other incentives
that would enable them love to stay in organization. It is pertinent
to state that organizations should have clear visibility, regular
individual analysis of organization-wide employee appraisals to
identify corporate competencies and skill gaps. With this valuable
data in hand, organizations could identify training and development
plans. This research was, therefore, convinced that if a holistic
172
application of the recommendations are carried out, it will bring
about the transformation of performance management of the civil
service in Enugu State.
173
Bibliography
Books
Adamolekun, L. (1986) Transforming the Civil Service in Larry Diamond, A. Kirk Green and Oyeleye Oyediran (eds.) Transition Without End,
Ibadan: Vantage Publishers. Adedeji, B. (2001). Civil Service in Nigeria: Issues and Principles. Ibadan:
Godon Press Ltd.
Ademolekun, L. (2005). Public Administration: A Nigerian and Comparative perspective. New York Longman Inc.
Al-Gore, (1993). From Red Tape to Results: Creating a Government that Works Better and costs less (Washington, D.C. Government Printing Office, 1993), 5.
Al-Gore,(1995). Common Sense Government Works Better and costs less. (Washington, D.C. Government Printing Office, 1995), 33.
Ali, S. M. (2003). Leading Public Service Innovation: The Case of the Nigerian Civil Service and Federal Civil Service Commission. Abuja: Federal Civil Service Commission.
Ana Zodo, R. O. (2009). Civil Service in Nigeria, An Analysis of Its Bureacration effectiveness, Onitsha. Abbot Books, Ltd.
Armstrong, M. (2008). Performance Management: Key Strategies and Practical Guidelines. Philadelphia: Kogan Page Limited.
Ayoade, A. A. (1988). States without Citizens: An emerging problem in D. Rothchild and N. Chazain (1986) (eds), The precarious Balance: State and Society in Africa, West View Press, Boulder.
Bade, C. C. (2009). Principles of Public Administration in Nigeria. Ibadan: University Press.
Boselie, P. (2010). Strategic Resource Management. London: McGraw-Hill Education.
Chikani, J. M. (2004). Elements of Secondary Administration. Enugu: Fred-Ogah Publishers.
Chike-Okoli, A. and Sarki, P. S. (2005). Influence of Physical Classroom. Environment on Academic Performance in Public and Private Primary Schools. In Akpa, G. O., s. U. and Fagbamiye, E. O. (Ed.).
174
Deregulating the Provision and Management of Education in Nigeria. Jos: M. P. Ginac Concept Ltd.
Chike-Okoli, A. N. (2004). Educational administration and Planning: Theory and Practice. Kaduna: Shamac Publishers.
Chukwunweike, M. (2006). Catholic Education in Nigeria within the 21st Century. Enugu: Ndubest Productions.
Clark, J. and Clark, S. (1992). Prioritize, organize the art of giving things done. Shawnee Mission K. S. National Press Publication.
Cole, G. A. (2002). Personnel and Human Resource Management, London; Continuum.
Faleti, S. A. (2006). Introduction to Peace and Conflict Studies in West Africa. Ibadan: spectrum Books Ltd.
French, W. (1978). The Personnel Management Processs: Human Resources Administration 4th Edition, New York: Houghon Mifflin Company.
Griffin, R. W. (1997). Management. Delhi: A.I.T.B.S. Publishers Ltd.
Hood (1986). Exploring variations in Public Management Reform of the 1980s in Bekke 1996.
Hornby, A. S. (2005). Oxford Advanced Learner’s Dictionary. Oxford: (7th Ed.). Oxford University Press.
Hosea 4:6 – Christian Bible.
Idris, I. O. (2009). Human Resource Management in Nigeria, Ibadan: University Press.
Igwe, O. (2002). Politics and Globe Dictionary. Enugu: Jamoe enterprises (Nig.).
Jaja, S. O. (2001). “The Colonial Civil Service”. In J. I. Elaigwu and G. N. Uzoigwe (eds.) Foundations of Nigeria Federalism Series. Jos: Inst. Governance Soc. Res.
Jann, W. (1997). Public Management Reform in Germany: A Revolution without a Theory Inkikert, 1997.
Kivagu, Kithinji, Rwekaza Mukandala and Denyse, M. 2004), Reforming Pay Policy: Techniques sequencing, and politics, Chap. 4 in Levy and Kpundeh (Eds.).
175
Kreitner, R., Kinicki, A. and Buelens, M. (2002). Organizational Behaviour, 2nd European Edition, London: McGraw-Hill.
Locke, E. A. (2003). Motivation through conscious goal setting, in L. W.
Porter, G. A. Bigley and R. M. Steers (eds), Motivation and Work Behaviour, New York: McGraw-Hill Higher Education.
Locke, E. A. and Latham, G. P. (1990). A theory of Goal Setting and
task performance. Englewood Ciffs, N. J: Prentice Hall.
Madu, A. O. (2005). “A Study of Academic Performance in Senior School Certificate Examination by Public and Private Schools”. In Akpa, G. O. Udoh, S. U. and Fagbamiye, E. O. Deregulating the Provision and Management of Education in Nigeria. Jos: M. P. Ginac concept Ltd.
Mallon, T. (2001). Stolen words. San Diego: Harcourt.
Miclay, C. (2007). Understanding Public Administration in Third World. Tokyo: Restrozia.
Moorhead, G. and Griffin, R. W. (1995). Organisational Behaviour, (4th Edition), Boston: Houghton Miffhin Company.
Mullins, I. J. (2007). Management and Organizational Behaviour. (8th Ed.) England: Pearson Education Ltd.
Nwachukwu, C. C. (2006). Management Theory and Practice. Onitsha: African FEB. Publishers.
Nwafor, J. C. (2002). Church and State: The Nigerian Experience.
Nwoke, C. N. and Omoweh, D. A. (2006). The Management of Nigeria’s Energy Resources for National Development. Lagos: Nigerian Institute of International Affairs.
Obasi, I. N. (1999). Research Methodology in Political Science. Enugu: Academic Publishing Company.
Obi, E. A. and Chukwuemeka, J. N. (2006). Public Administration theory and application; Onitsha Abbrt Communication.
Odeniga, P. P. (2007). Dynamics of Public Administration. Chicago University Press.
Ofuebe, C. (2005). Scramble for Nigeria. Enugu: New Generation Book Ltd.
Ofuebe, C. (2006). Strands in Nigerian Development and Administration. Joen Printing and Publishers Company, Enugu.
176
Ogundiya, I. S. (2007). “Minimizing the Cost of Governance in Nigeria through Civil Service Reforms: Rightsizing, Downsizing or Retrenchment”. A. S. Akpofor, A.O. Afolabi, M. O. Aigbokhaevboho, B. O. Iganiga and O. S. Odiagbe (eds.) Cost of Governance in Nigeria: An Evaluative Analysis. Ekpoma: Faculty of Social Sciences. Ambrose Alli University Press.
Okonkwo, I. E. (2008). Civil Service Politics in Nigeria. Accra: Bollios Publishers.
Okpata, F. O. (2004). Bureaucratic Communication and Information Management; Enugu, Jones Communication, Publishers.
Olonode, M. L. (2007). Harmful Practices Among the Adolescents. Abeokuta: Zam-B Publishers.
Olowu, D., Adamolikun, L. (2005). “Human Resources Management”. In L. Adamolekun (ed.) Public Administration in Africa: Main issues and selected country Studies. Ibadan: Spectrum Books.
Omeh, G. C. (2010). Moral Philosophy of School Management. Nsukka: Lawnet Communication.
Onah, F. O. (2008). Human Resource Management. Enugu: John Jacob’s Classic Publishers Ltd.
Onah, F. O. (2014). Human Resource Management. 3rd Edition,
Enugu: University of Nigeria Press Ltd.
Onuoha, B. C. (2000). Fundamentals of Business and Management in Nigeria. Aba – Nigeria: Unique Printing and Packaging Company Limited.
Paul, E. and Robinson, M. (2007). ‘Performance Budgeting, Motivation and Incentives’, Chap. 18 in Robinson, Marc (Ed.), pp. 330-375.
Pearson, R. (1991). The Human Resources, Managing People and Work in the 1990s. London McGraw Hill Book Company.
Pilbeam, S. and Corbridge, M. (2002). People Resourcing: MRM in Practice.
England: Prentice Hall.
Purohit, Mahesh, C., (2007). “Corruption in Tax Administration: in Shah (Ed.), pp. 285-302.
Robbinson, D. G. and Robbinson, J. C. (1995) Performance Consulting Moving Beyond Training. San Francisco. Berret-Koehler Publishers.
177
Robbinson, Marc (Ed.), (2007). Performance Budgeting: Linkinmg Funding and Results, International Monetary Fund and Palgrave/McMillian, 552p.
Robbinson, Mark (2006). ‘The Political Economy of Governance Reforms in Uganda’, IDS Discussion Paper 386, Brighton: Institute of Development Studies, University of Sussex (May).
Yahaya, A. Dk. (1992). Civil Servants as Economic Managers II in MAMSERS Social Transformation for Self-Reliance, Proceedings of a National Conference, Ibadan: Fountain Publication.
Journals
Alutu, A.N.G. and Aluede, O. (2006). “Secondary School Students’ perception of Examination Malpractice and Examination Ethics”. Journal of Human Ecology, Vol. 20 (4): 1-2.
Amaluy, N. O. (2010). “P.P.S.M.B. Enugu Ready to Fight Examination Malpractices in Enugu State”. The Educator, vol. 6 (2): 5-6.
Collier, P. (2000). “Rebellion as Quasi-Criminal Activity”, Journal of Conflict Resolution, Vol. 44, No. 6-8.
Craig, E. S. (1974). “Behaviour modification in Management: A Review and Critique”. Academy of Management Journal. Vol. 6(2): 29-30.
Den Hartog, D. N., Boselie, P. and Paauwe, J. (2004). Performance Management: A Model Research Agenda. Applied Psychoogy: An International Review, 53 (4): 556-669).
Egbule, R. O. (2010). “The Current Public Service Salary Administration Regime and Key Issues”. Salaries and Wages Bulletin. Vol. 1(1): 10-11.
Eme, O. and Ugwu, S. C. (2011). ‘Development State Bureaucracy in Nigeria: Restructuring for Effectiveness (1999-2007), Arabian Journal of Business and Management Review, Vol. 1 (4): 41-54.
Goldsmith, A., J. Veum, and W. Darity, Jr., (2000). “Working Hard for the Money”. Efficiency Wages and Worker Effect”, Journal of Economic Psychology Vol.21 (4): 351-385.
Griffeth, R. W., Hom, P. W., Gaertner, S. (2000). “A Meta-analysis of Antecedents and Correlates of Employee Turnover: Update Moderator Tests and Research Implication for Next Millennium.” Journal of Management. Vol. 26 (3): 3-4.
178
Hale, N. M. and Weber, M. J. (2001). Predictors of Cheating among Early Adolescents. Academic and Social Motivation. Contemporary Educational Psychology. Vol. 26: 96-115.
Idris, O. M. (2006). Reassessing the Factors of Discipline in Nigeria’s Education System. International Journal of Research in Education. Vol. 3, (2) 10-12.
Ikeanyibe, O. M. (2009). “The Irony of One-party State in a Multi-party System: A Study of Political parties in Nigeria’s Fourth Republic (1999-2009). Nigerian Journal of Politics and Administration. Vol. 2 (1): 60-74.
Ikediashi, A. E. (2002). Influence of Physical classroom Environment on Academic Performance of Pupils in Public and Private Schools: a Case Study. African Journal of Education Research Vol. 1 (1) 12-13.
Kohn, Alifie, (1983). “How incentives undermine performance”. Journal for Quality and Participation. 21 (2): 6-13.
Lang, J. C. (2001). “Managerial Concerns in Knowledge Management”. Journal of Knowledge Management, Vol. 5, No. 1: 78-83.
Leithwood, K. and Jantzi, D. (2000). “The Effects of Transformation Leadership on Organizational Conditions and Student Engagement with School.” Journal of Educational Administration, Vol. 38, (2), p. 12-14.
Lunger, K. (2006). “Why You Need More Than a Dashboard to Management Your Strategy.” Business Intelligence Journal Vol. 11: 8-18.
Marr, B. (2005). “Business Performance Measurement: An Overview of the Current State of Use in the USA.” Measuring Business Excellence. Vol. 9 (3): 56-62.
McCormick, M. J. (2Vol.001). ‘Self-efficacy and Leadership Effectiveness: Applying Social Cognitive Theory to leadership, The Journal of Leadership Studies, Vol. 8, No. 1, 112-119.
McOliver, F. O. (2005). “Management in Nigeria: Philosophy and Practice.” International Journal of communication on Human Studies. 2 (1): 5-6.
Mohammad, H. Y. and Musa, A. (2008). “Comments on the Need for Reforms and Innovations in Nigeria Tertiary Education”. Journal of Education. Vol. 1 No. 1. 12-13.
179
Moon, H. (2001). The Two Faces of Conscientiousness: Duty and Achievement Striving in Escalation of Commitment Dilemmas. Journal of Applied Psychology, Vol. 86, No. 5, 69-71.
Moynihan, D. P. and Pandey, S. K. (2007). “Finding Workable levers over work motivation: Comparing job satisfaction, job involvement and organizational Commitment”. Journal of Administration and Society, Vol. 39, No. 7, 84-90.
Njoku, D. O. (2006). Equalization of Educational Opportunities in Nigeria. International Journal of Research in Education. Vol. 3: (3) 26-27.
Nonis, S. and Swift, C. O. (2001). “An Examination of the Relationship between Academic Dishonesty and Work Place Dishonesty”. Journal of Business Education, 77, (2) 14-15.
Obi, E. A. (2007). “Inter-Group Violent Conflicts in Nigeria: Towards Better Resolution, Management and Transformation.” Journal of International Politics and Development, Vol. 3(1): 213-230.
Ogunrotifa, A. B. (2012). ‘Weberian Bureaucracy and Its Problems in Nigeria: Proposing Democratic Centralism in the Management of Public Institutions’. Asian Journal of Research in Social Sciences and Humanities, Vol. 2 (10): 1-24.
Okotoni, O. (2001). ‘Problems and Prospects of Nigerian Bureaucracy’. Journal of Social Sciences, 7 (3): 223-229.
Okunamiri, P. O. (2007). ‘Evaluation of the Effectiveness of Privately owned Commercial Schools in Imo State of Nigeria.’ Journal of Educational Administration and Planning, Vol. 7, No. 1, 21-27.
Olujuwon, O. T. (2004). Teachers’ Education and the Nigerian Teacher in Nigerian Education Review, 9(1): 1-2.
Omoleke, I. I. (2004). “The Bureaucratic “Failure” in Nigeria: A Critical Analysis of the Nigerian Government Bureaucracy”. International Journal of Studies in the Humanities. Vol. 3(1): 158-160.
Onah, F. O. (2002). “Paradox of Grievance Management in a Bureaucratic Setting”. Nigerian Journal of Public Administration and Local Government (NJPALG), Vol. II, No. 1, 92-104.
Onah, F. O. (2004). “The environment and Human Resources Development in Nigeria: A Dialectical Relationship.” International Journal of Studies in the Humanities (IJOSH), Vol. 3, No. 1, 54-55.
180
Pandey, S. K. and Rainey, H. G. (2006). Public Managers’ perceptions of organizational goal ambiguity: Analyzing alternative model. International Public Management Journal, Vol. 9, No. 2, 49-53.
Pandey, S. K. and Wright, B. E. (2006). Connecting the dots in Public Management: Political Environment, organizational goal ambiguity and the Public Manager’s role ambiguity. Journal of Public Administration Research and Theory, Vol. 16, No. 4, 8-11.
Pandey, S. K., Wright, B. E. and Moynihan, D. P. (2008). Public Service Motivation and Inter-organizational citizenship behaviour: Testing a Preliminary Model. International Public Management Journal, Vol. 11, No. 1, 88-94.
Politis, J. D. (2001). ‘the relationship of various Leadership styles to Knowledge Management’. Leadership and Organization Development Journal, Vol. 22, No. 8, 32-37.
Riordan, C. M., Vandenberg, R. J., Richardson H. A. (2005). “Employee Involvement Climate and Organizational Effectiveness.” Journal of Human Resource Management. 44 (4): 2-3.
Salami, A. O. and Odeyemi, J. T. (2012). ‘An empirical Analysis of the Impact of Contributory Pension Scheme on employees’ retirement benefits of quoted firms in Nigeria. American Journal of Social and Management Sciences, Vol. 3 (1): 1-7.
Smith, P. C. and Goddard, M. (2002). “Performance Management and Operational Research: a Marriage Made in Heaven.” Journal of the Operational Research Society, 53 (3): 24-255.
Steijn, B. (2008). Person-environment Fit and Public Service motivation. International Public Management Journal, Vol. 11, No. 1, 12-14.
Stephen, B. A. (2011). ‘The Economic Implications of Monetization Policy in Nigeria’. Journal of Economics and Sustainable Development, Vol. 2 (3): 60-76.
Stonehouse, G. H. and Pemberton, J. D. (2002). Learning and Knowledge Management in the Intelligent Organization. Participation and Empowerment: An International Journal, Vol. 7, No. 5, 11-15.
Sun, B. (2007). “The Theoretic and practical Analysis of Stimulation Issue in Public Performance Management.” Personnel Monthly, Vol. 45 (5): 32-33.
181
Taplin, I. M., Winterton, J., Winterton, R. (2003). “Understanding Labour Turnover in a Labour Intensive Industry: Evidence from British Clothing Industry.” Journal of Management Studies, Vol. 40 (4): 4-5.
Taylor, J. (2008). ‘Organizational Influences, Public Service Motivation and Work Outcomes: an Australian Study.’ International Public Management Journal, Vol. 11, No. 1, 99-101.
Vallance, S. (1999). ‘Performance Appraisal in Singapore, Thailand and the Philippines: A Cultural perspective’, Australian Journal of Public Administration, Vol. 58 (3): 78-95.
Newspapers/Magazines
Abati, R. (2005). “Adams Oshomhole. The People’s President”, The Guardian. Saturday, Jan. 1.
Abiola, I. (2012). Corrupt Civil Servants have no place in my government. The Sun. Tuesday, June Vol. 7, No. 2388.
Adams, Oshiomole, (2005). Speech at the Opening Ceremony of the First Quadrennial Delegates Conference of the Maritime Workers Union of Nigeria, (MWUN) cited in Vanguard, 18th March, 2005.
Aja-Nwachukwu, I. (2011). Human Capital should be valued on the basis of skills, not certificate. The Guardian. Tuesday, Jan. 4, p. 27.
Animashaun, B. (2000). Parents flay seizure of 100,000 results by WAEC. The Guardian, Thursday, Dec. 7, p. 7.
Anyaorah, S. (2011). Educational Negligence among the Youths: A misplaced value. The Justice Magazine. May, p. 42.
Banji, A. (2008). Students and WAEC Exams: Hope deferred. The Guardian, Wednesday, October 29, p. 67.
Ben, O. (2008). Nigeria’s Education Crisis and Imperatives of Reform. The This Day, Wednesday Jan. 23, p. 80 (Vol. 13, No. 4659).
Daily Independent (2004). Principal arrested for impersonation at Examination Hall, 28 Sept.
Levinson, M. (2003). One tough job: How to find, fix ,or fire your poor performers. CIO Magazine, 41 paragraphs. Retrieved January 26, 2004 from the Lexis Nexis Academic database.
182
Meisler, A. (2003). Dead man’s curve. Workforce management, 81 (7), 44. Retrieved January 26, 2004 from Business and Company Resource Centre database.
Morrison, R. W. & Keefe, M. M. (2003). The Corporate Counsellor, 18 (4), k3. Retrieved January 26, 2004 from the Levis Nexis Academic database.
Government Publication
Ezema, C. (2010). Invitation to One-Day Meeting on Enugu State Government Structure, Organization and Functions. Mandate and Structure of Public Service Document.
Federal Republic of Nigeria. The 1979 Constitution of Nigeria. Federal Ministry of Information, 1979.
F.M.E. (2004). National Policy on Education: Abuja NERDC.
F.R.N. (Federal Republic of Nigeria) 1999 Constitution. Section 14 (4).
F.R.N. (Federal Republic of Nigeria). 1998, Implementation Guidelines on the Civil Service Reforms, Federal Government Press (FGP), Lagos, Nigeria.
Federal Republic of Nigeria (1999). Examination Malpractice Act., Lagos: Government Press.
Nigerian Government Educational Research and Development Council (2004). National Policy on Education, NERDC Press. Lagos, Nigeria, pp 36-37.
Salisu, M. (2001). Incentive structure, Civil Service Efficiency and the hidden Economy in Nig. U.N. World Institute for Development and economic Research (WIDER) Discussion Paper No. 2001/86.
Internet Sources
American Society for Public Administration, 1120 G.Street NW, Suite 700, Washington, DC 20005-3885. Available online at http://www.aspanet.org/scriptcontent/index-codeof ethics.cfm.
Armstrong and Baron (1998). “For the performance management in the context of Information Technology”. http://www.managment studyguide.com/performance management.htam.
Bob, K. (2013). “Civil Service Reform”. https.//bobkevslake.blog.gov.uk/2013/11/13/G-look-at-the-performance-management-system.
183
Cooper, C. L. & Argyris, C. (Eds.) (1998) The Concise Blackweell Encyclopedias of Management MLSWN, Massachusetts: February 7, 2004 from http://vrl-web 1.1ssi.com/wcscgi/CDM.exe?ss-COMMAND=CUST-sup & Category=UMUCPATRONI(password required).
Daggash, S. (2008). Why Nigeria Needs a National Development Master Plan. Accessed online at URL www.vanguardngr.com/content/view/19160/48/-79k.
Eromosele, S. (2008). Taming the menace of examination malpractice in Nigeria – Panorama… Accessed online at http://www.tigweb.org/youth-media/panorama/article.html?"l Arena contented … Retrieved on 21/11/11/.
Grant, C. (2009). “realist Theory in World affairs: Power politics and the Fight for Survival in the International Arena”. http:www.suit 101.com/content/classical-realism-in-the-world-943131. Retrieved, 16/4/12.
Gravelt, L. (2004). “Improving employee Productivity” www.altavisa.com. > 15-12-07.
Jackson, F. (2004). “Improving productivity” www.altavisa.com. > 15/12/07.
Ministry of civil service and Administrative Reforms. Level 7, New Government Centre, Port Louis, Republic of Mauritius http/civilservice.gov.Mu.
Rhonda Pennings (2010). Transformational Leadership: How do we get there? http://chairacademy.com.
Rozainun, Noormala, Puzziawati, Rohana (2009). Tranformational Leadership towards World Class University Status: Emerging Global Model plus. Journal of Global Management, Institute Fidal Inc. http://www.gmr.journal.com.
Stephen Covey (2010). The Transformational Leadership report. www.Transformational Leadership.net
Stephen Warrilow (2010). Transformational Leadership theory-4 key components in leading change and managing change http://ezinearticles.com/?expert Stephen Warrilow.”
William, H. (2013). Performance Management arrangements for the Senior Civil Service 2013/13/14. Human Resource Practitioners Guide
184
April 2013. content/uploads/2011/07/performance management-Arrangement-for-scs-2013-14-HR-Practitioners-Guide.
Unpublished Works/Conference Papers
Adegoroye, G. (2006). ‘Public Service Reform for Sustainable Development: The Nigerian Experience’, Keynote Address presented at the Commonwealth Advanced Seminar, 2006 Wellington New Zealand, 20th Feb. – 3rd March.
Amujiri, B. A. (1999). Motivation and Productivity in the Nigerian Civil Service. A Case Study of Enugu State, Ph.D. Thesis: PALG, UNN.
Asogwa, M. O. (2009). “Human Rights violation in Nigeria under Obasanjo Administration.” Unpublished Ph.D. Thesis: Submitted to the Department of Public Administration and Local Government, University of Nigeria, Nsukka.
Igwesi, J. E. (2007). Motivation and Productivity in Public Organizations in Nigeria: An Evaluation of Federal Capital Territory Administration (FCTA) 2004-2007.
Ngwoke, C. (2010). Church, Politics, Conscience, and power. The Moral Dimension to Nigerian’s Democratic Reward. A paper presented to First Synod Assembly of the Catholic Diocese of Nsukka, Nigeria.
Ngwoke, E. (2004). Option for the poor and sustainable Development: A Theological Critique of Politics in Enugu State, Nigeria. (Unpublished M. Thesis, Port Harcourt CIWA), p. 46.
Nwadiani, M. (2005). Curbing Examination Malpractice in the Nigerian Educational System. A lead paper presented at the First Annual Conference of the Faculty of Education, Ambrose Ali University, Ekpoma, Nov. 10-12.
Nwankwo, B. C. (2005). “Administrative Theory.” Lecture Handout p. 79.
Obioji, J. N. (2011). An evaluation of the Implementation of SERVICOM in Human Resources Management in Anambra State, Ph.D. Thesis: PALG, UNN.
Ogundiya, I. S. (2001). “Minimizing the cost of Governance in Nigeria Through Civil Service Ekpoma, July 4th – Reforms. Rightsizing, Downsizing or Retrenchment”, A Paper presented at the National Conference on cost of governance in Nigeria, held at the Faculty of Social Sciences, Ambrose Alli University, 6th.
185
Ojeikere, M. B. (2004). Examination activities in Nigeria: Victims of Social vices. Paper delivered at the WAEC Monthly Seminar, 10th September.
Olowu, D., Otobo, E. and Okotoni, M. (1997). “The role of the Civil Service in enhancing Development and Democracy: An Evaluation of the Nigerian Experience”, Paper prepared for presentation at Civil Service Systems in Comparative Perspective, School of Public and Environmental Affairs, Indian University, Bloomington, Indiana, April, http://www.edu/csrc/olowul.html.
Omeh, F. (2002). Reward system in Service. The P.P.S.M.B. A paper presented at a Workshop organized by Enugu State Post-Primary Schools’ Management Board, May 20-21 at Royal Palace Hotel, Enugu.
Onah, F. (2001). Mobilization strategies for effective Community/Rural Development in Anambra State, Paper presented at the First Anambra State Community Development summit, held at Cana House, January 2001.
Osondu, M. O. (2008). “Evaluation of Nigeria’s Membership in the Multilateral Economic organizations: A case study of Nigeria in ECOWAS (1975-2008)”. Unpublished Ph.D. Thesis: submitted to the Department of Public Administration and Local Government, University of Nigeria, Nsukka.
Salisu, M. (2001). ‘Incentive Structure, Civil Service Efficiency and the Hidden Economy in Nigeria’. Discussion Paper No. 2001/86, Word Institute for Development Economics Research, United Nations University, Sept. 2001.
Ujo, A. A. (2010). “Fifty years of Public Service in Nigeria: Problems and Prospects: A Paper presentation, Abuja.
186
APPENDICES
APPENDIX 1
INTERVIEW SCHEDULES
Department of Public Administration & Local Government University of Nigeria Nsukka 13th June, 2012 Sir/Madam,
I am carrying out a project on the performance
management in the Nigerian Civil Service taking Enugu State
as a case study. As part of my data gathering requirements, your
opinions are solicited through the attached interview questions. The
information you give will be strictly confidential and will not be
used for any other purpose than the one state above. You are
requested to answer the questions as honestly as possible.
Kindly, return your answer copy to the person who gave it to
you or direct to me through the above address or whichever way
that is suitable to you.
Thanks very much for your anticipated cooperation.
Yours sincerely,
/Signed/
Asogwa, Mathias O.
187
Please give your answers to each of the following questions by
ticking (√) in the box in front of each answer. Give one answer in
each case.
SECTION A: (PERSONAL DATA)
(1) What is your gender
Male (b) Female
(2) What is your status in your place of work?
(a) Senior staff (b) Junior staff
(3) What is your marital Status?
(a) Single (b) Married (c) Widowed
(d) Separated
(4) What is your highest educational qualification?
(a) FSLC (b) WASC/GCE (c) OND/NCE
(d) HND/Degree (e) M.Sc/M.A (f) Ph.D
(5) Where does your age range fall presently in the following
groups of age range?
(a) 15 – 24 (b) 26 – 34 (c) 35 – 44 (d) 45 – 54
(e) 55 – 64 (f) 65 – 70
188
Interview schedule on training and retraining of staff, Promotions, adequate housing and car loans on the Performance Management of Enugu State civil service
S/No. Interview Schedule Items
1. Is Enugu State civil service having the required training and re-training of staff to meet up with the required performance management system?
2. Is the management able to show clearly what the job holder will do in terms of people development and increasing the capability of their teams?
3. Do workers in Enugu State civil service receive higher pay than their counterparts in other States in order to boost their performance?
4. Is the senior public service in Enugu State civil service paying its full role of providing leadership and management without political interference?
5. Senior Public Servants in Enugu State are being promoted as a result of worker’s performance.
6. Enugu State have a regulatory body that are in charge of the workers’ salary and this body curbs any struggle that may arise between government and the workers.
7. Workers in Enugu State civil service do compete favourably with other workers in the public sectors for service deliver?.
8. Has Enugu State increased the remunerations and incentives of her workers be it on an individual or collective level?
9. Overall average for testing of the performance management of Enugu State civil service on training, retraining of staff, promotions and adequate housing and car loans.
189
Interview on the obstacles associated with workers performance management appraisal which impede performance
S/No. Interview schedule Items
10. Do Enugu State civil service have performance management system which seeks to enhance performance at all levels by focusing on key areas of activity/services to be delivered which are identified through strategic planning processes?
11. Has the head of sections/units of the Enugu State civil service being able to develop a section/unit plan based on Key Result Areas assigned by the supervising officer?
12. Do the workers of Enugu State civil service being able to be monitored during the appraisal period and documenting performance, communicating and providing feedback?
13. Do supervisors keep performance registers of their workers and know how and when he meets up with the set goal.
14. Enugu State does not give Awards regularly for outstanding work performance which had impact on public interest?
15. Is Enugu State slow in motivating employees and providing effective communications which is associated with effective implementation of change?
16. Do you think supervisors of staff in Enugu State civil service has helped staff to perform creditably well and also had been a source of motivation?
17. Enugu State government has a well laid down system of “positive’ motivators with a credible and fair risk of sanction in case of misbehaviour.
18. Enugu State civil service is using the performance management appraisal form to evaluate her numerous members of staff.
19. Individual incentives are often low-powered in Enugu State civil service, mainly because of the difficulty to find appropriate objective performance measures to which linking remuneration, as well as risks of distortions and importance of teamwork.
20. Overall average of the obstacles associated with workers performance appraisal which impedes performance management of civil service in Enugu State.
190
Interview on the hindrances of that impede on the measures employed to engender performance management of Enugu State civil service.
S/No. Interview schedule Items
21. Enugu State has not been able to improve the result of public organizations through the auditing and reviewing mechanism which is currently in vogue for political accountability and information transparency of governments.
22. Workers of Enugu State civil service are paid on the basis of pay-for-performance based on objective measures of performance.
23. Workers’ recruitment in the service had been majorly been based on merit by more on nepotism and political patronage.
24. Enugu State civil service staff is weakly motivated and are unwilling to put forth effort.
25. Politicians and parliament occasionally collude with corrupt administration if they need cash to finance the electoral process and other expenditures.
26. Corruption of some high ranking officers in the civil service discourages greater percentage of workers to perform high.
27. Anti-corruption measures such as Independent Corrupt Practices and other Related Offenses Commission (ICPC) and Economic and Financial Crimes Commission (EFCC) sometimes have been used by the government to harm political opponents.
28. Enugu State civil service staff has developed informal rules that are more in line with real constraints and they resist change.
29. Has Enugu State civil service staff been able to apply ethics, efficiency, and effectiveness in serving the public?
30. The Enugu State government’s poor budgetary allocation to the State civil service does not encourage performance management system in Enugu State.
31. Overall average that corrupt practices and neglect by the political office holders in Enugu State civil service affects performance management system.
191
APPENDIX 2
192
APPENDIX 3
193
APPENDIX 4
194
APPENDIX 5
One-sample Statistics
N Mean Std.
Deviation
Std. Error Mean
Is Enugu State civil service having the required trainings and retraining of staff to meet up the required performance management system?
500 2.3200 1.31950 .05901
Is the management level able to show clearly what the job holders will do in terms of achieving the organizational goals?
500 1.7600 .81469 .03643
Do workers in Enugu State civil service receive higher pay than their counterparts in other States in order to boost their performance?
500 1.2400 .51276 .02293
Is the senior public service in Enugu State civil service playing any full role of providing leadership and management without political interference?
500 1.2400 .065057 .02909
Senior public servants in Enugu State are being promoted as a result of workers performance?
500 1.8800 .85435 .03865
Enugu State have a regulatory body that are in charge of the workers’ salary and this body curbs any struggle that may arise between government and workers?
500 1.1200 .43124 .01929
Workers in Enugu State civil service compete favourably with other workers in the public sectors for service delivery?
500 3.6000 1.23412 .05519
Has Enugu State increased the remunerations and incentives of her workers on individual or collective basis?
500 3.8400 1.28752 .05758
195
One Sample Test
Test Value = 0
t df Sig. (2-tailed)
Mean Difference
95% Confidence Interval of the
Difference
Lower Upper
Workers rewarded based on
performance? 39.315 499 .000 2.32000 2.2041 2.4359
Annual performance evaluation report
scores of civil servants are objectively
conducted
48.300 499 .000 1.76000 1.6884 1.8316
Workers in the State civil service
receiving higher salaries than their
counterparts in other States?
0.574 499 1.905 1.24000 1.1949 1.2851
Medical services or canteen facilities
provided for workers? 42.620 499 .000 1.24000 1.1828 1.2972
Workers in the civil service do not
lack working material and these affect
their performance?
48.636 499 .000 1.88000 1.8041 1.9559
State government implements federal
government directives on minimum
wage increase to workers in service?
58.074 499 .000 1.12000 1.0821 1.1679
Promotion of workers in the state civil
service as at and when due? 57.980 499 .000 3.2000 3.0916 3.3084
Workers are rewarded through the
acquisition of additional certificates? 49.323 499 .000 2.84000 2.7269 2.9531
196
One-sample Statistics
N Mean Std.
Deviation Std. Error
Mean
Do Enugu State civil service have performance management system which seeks to enhance performance at all levels by focusing on key areas of activity/services to be delivered which are identified through strategic planning process?
500 2.4400 1.02396 .04579
Has the head of sections/units of the Enugu State civil service being able to develop a section/unit plan based on Key Areas assigned by the supervising officer?
500 3.5200 1.33160 .05955
Do the workers of Enugu State civil service being able to be monitored during the appraisal period and documenting performance and communicating performance and communicating and providing feedback?
500 4.0400 1.21711 .05442
Supervisors do not keep performance registers of their workers and know how and when he meets up with the set goals?
500 4.3200 .96927 .04335
Enugu State does not give Awards regularly for outstanding work performance which had impact on public interest?
500 4.2200 .98404 .04401
Supervision of staff in Enugu State civil service had not helped staff to perform creditably well and also had not been a source of motivation to workers?
500 4.4400 .85314 .03815
Enugu State has been slow in motivating employees and providing effective communications which is associated with effective implementation of change?
500 4.1200 1.17829 .05269
Enugu State government has a well laid down system of “positive” motivators with a credible and fair risk of sanction in case of misbehavior?
500 1.7200 .66520 .02975
Enugu State civil service is using the new performance management appraisal form to evaluate her numerous members of staff?
500 2.9400 1.21711 .05443
Individual incentives are often low-powered in Enugu State civil service, mainly because of the difficulty to finding appropriate objective performance measures to which remunerations are linked to?
500 4.3600 .62545 .02797
197
One Sample Test
Test Value = 0
t df Sig. (2-tailed)
Mean Difference
95% Confidence Interval of the
Difference
Lower Upper
Do Enugu State civil service have performance management system which seeks to enhance performance at all levels by focusing on key areas of activity/services to be delivered which are identified through strategic planning process?
53.283 499 .000 2.44000 2.3500 2.5300
Has the head of sections/units of the Enugu State civil service being able to develop a section/unit plan based on Key Result Areas assigned by the supervising officer?
Q59.109 499 .000 3.52000 3.4030 3.6370
Do the workers of Enugu State civil service being able to be monitored during the appraisal period and documenting performance and communicating and providing feedback?
74.223 499 .000 4.04000 3.9331 4.1469
Do Supervisors keep performance registers of their workers and know how and when they accomplish the set goals?
99.551 499 .000 4.32000 4.2348 4.4052
Does Enugu State give Awards regularly for outstanding work performance which had impact on public interest?
100.892 499 .000 4.44000 4.3535 4.5265
Is supervision of staff in Enugu State civil service helped staff to perform creditably well and also had not been a source of motivation to workers?
116.371 499 .000 4.44000 4.3650 4.5150
Is Enugu State slow in motivating employees and providing effective communication which is associated with effective implementation of change?
40.232 499 .000 2.12000 2.0165 3.2235
Has Enugu State government a well laid down system of “positive” motivators with a credible and fair risk of sanction in case of misbehavior?
57.818 499 .000 1.72000 11.6616 1.7784
Is Enugu State civil service using the new performance management appraisal form to evaluate her numerous members of staff.
37.479 499 .000 2.04000 1.9331 2.1469
Is individual incentives often low-powered in Enugu State civil service, mainly because of the difficulty to finding appropriate objective performance measures to which remunerations are linked to.
155.877 499 .000 4.36000 4.3050 4.4150
198
One-sample Statistics
N Mean Std.
Deviation Std. Error
Mean
500 4.4400 .94243 .04215 Do you think workers of Enugu State civil service are paid on the basis of pay-for-performance based on objective measures of performance?
500 1.4000 .84938 .03799
Are workers’ recruitment in the service based on merit or favouritism and political patronage?
500 3.8800 1.17829 .05269
Is Enugu State civil service staff weakly motivated and are unwilling to put forth effort?
500 3,9600 1.21711 .05443
Do you think the politicians and parliament occasionally collude with corrupt administration if they need cash to finance the electoral process and other expenditures?
500 4.2800 1.07885 .04825
Do you think corruption of some high ranking officers in the civil service discourages great percentage of workers from performing highly?
500 3.9200 1.35546 .06062
Is anti-corruption measures such as Independent Corrupt Practices and other Related Offences Commission (ICPC) and Economic and Financial Crimes Commission (EFCC) sometimes used by government to harm political opponents?
500 3.9600 1.18372 .05294
Do you think that Enugu State civil service staff has developed informal rules that are more in line with real constraints and they resist change?
500 3.7200 1.11539 .04988
Has Enugu State civil service staff been able to apply ethics, efficiency and effectiveness in serving the public?
500 1.6400 1.01610 .04544
Do you think that Enugu State government’s budgetary allocation to the State civil service encourages performance management system in Enugu State?
500 4.000 1.29745 .05802
199
One-Sample Test
Test Value = 0
t df Sig. (2-tailed)
Mean Difference
95% Confidence Interval of the
Difference
Lower Upper
Has Enugu State been able to improve the result of public organization through the auditing and reviewing mechanism which is currently in vogue for political accountability and information transparency of government?
105.346 499 .000 4.44000 4.3572 4.5228
Do you think workers of Enugu State civil service are paid on the basis of pay-for-performance based on objective measures of performance?
36.856 499 .000 1.40000 1.3254 1.4746
Is workers’ recruitment in the service majorly based on merit or favouritism and political patronage?
10.631 499 .000 3.88000 3.7765 3.9835
Is Enugu State civil service staff weakly motivated and are unwilling to put forth effort?
72.753 499 .000 3.96000 3.8531 4.0669
Do you think politicians and parliament occasionally collude with corrupt administration if they need cash to finance the electoral process and other expenditures?
88.709 499 .000 4.28000 4.1852 4.3748
Is corruption of some high ranking officers in the civil service discouraging great percentage of workers from performing highly?
64.667 499 .000 3.92000 3.8009 4.0391
Is anti-corruption measures such as Independent Corrupt Practices and Other Related Offences Commission (ICPC) and Economic and Financial Crimes Commission (EFCC) used sometimes by government to harm political opponents?
74.805 499 .000 3.96000 3.8560 4.0640
Do you think Enugu State civil service staff has developed informal rules that are more in line with real constraints and they resist change?
74.577 499 .000 3.72000 3.6220 3.8180
Has Enugu State civil service staff been able to apply ethics, efficiency and effectiveness in serving the public?
36.090 499 .000 1.64000 1.5507 1.7293
Is Enugu State government’s poor budgetary allocation to the State civil service encouraging performance management system in Enugu State?
68.938 499 .000 4.00000 3.8860 4.1140
200
T-Test for the three totals (total factors of the three objectives in this study).
N Mean Std.
Deviation Std. Error
Mean
Performance enhancement in Enugu State civil service.
500 1.9500 .36779 .01645
Performance management appraisal of Enugu State civil service.
500 3.5200 .56199 .02513
Measures that impede performance management in Enugu State civil service.
500 3.7440 .27020 .01208
One-Sample Test
Test Value = 0
t df Sig. (2-tailed)
Mean Difference
95% Confidence Interval of the
Difference
Lower Upper
Performance enhancement in Enugu State civil service.
118.554 499 .000 1.95000 1.9177 1.9823
Performance management appraisal of Enugu State civil service.
140.055 499 .000 3.52000 3.4706 3.5694
Measures that impede performance management in Enugu State Civil service.
276.732 499 .000 3.3400 3.3203 3.3677