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REPUBLIC OF MOZAMBIQUE

PUBLIC ADMINISTRATION DEVELOPMENT AND

REFORMS STRATEGY (2011-2025)

“The public servant to serve better the Citizen”

Approved by the Council of Ministers at the 29th Ordinary Session 14 August 2012

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LIST OF ACRONYMS

PA Public Administration

MTFS Medium Term Fiscal Scenario

CIRESP Inter-ministerial Commission of Public Sector Reform

CPI Corruption Perception Index

DIRE Identification Document for Alien Resident

e-CAF Online for Civil servants Data-base

e-SIP Electronic Subsystem of Personal Information

e-SISTAFE The State Financial Management Electronic System

GovNet Government Electronic Network

IFAPA Training Institute in Public Administration and Local Government

ISAP Higher Institute of Public Administration

NUIT Single Tax Identification Number

MDG Millennium Development Goals

NGO’s Non Governmental Organizations

PARPA Reduction of Absolute Poverty Action Plan

PES Economic and Social Plan

UNDP United Nations Development Program

SADC Southern Africa Development Community

SIGEDAP Public Administration Performance Management System

SISTAFE The State Financial Management System

ITC Information Technologies and Communication

UTRESP Public Sector Technical Unit Reform

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Table of Contents

1. Introduction .......................................................................................... 10

1.1. Motivation of ERDAP ....................................................................................................................... 10

1.2. Rationale of ERDAP ........................................................................................................................ 11

2. Diagnosis of Mozambican Public Administration ................................................. 14

2.1. The Public Administration – Main Indicators ................................................................................ 18

2.1.1. Characterization of Civil servant ................................................................................................. 18

2.1.2. Evaluation of Services Provided .................................................................................................. 21

2.1.3. International indicators ................................................................................................................ 26

3. Strategic Guidelines ................................................................................. 30

3.1. Vision and Mission .......................................................................................................................... 30

Vision ......................................................................................................................................................... 30

Mission ...................................................................................................................................................... 30

3.2. Values .............................................................................................................................................. 30

3.3. Strategic Objectives and Components Development ................................................................... 31

3.4. Main Goals of ERDAP ..................................................................................................................... 34

3.5. Critical Factors of Success ............................................................................................................. 36

4. Components of Development of Public Administration ........................................... 41

4.1. Professionalization of Civil servants and State Agents (Component 1) ...................................... 43

4.1.1. Background: Achievements and Progress .................................................................................. 43

4.1.2. Current Situation: Challenges...................................................................................................... 44

4.1.3. Development Strategy: Objectives and Intervention Areas ....................................................... 46

4.1.4. Performance Indicators ............................................................................................................... 47

4.2. Decentralization and Deconcentration (Component 2) ............................................................... 47



4.2.3. Development Strategy: Objectives and Area of Performance ................................................... 49


4.3. Improving the Provision of Service (Component 3) ...................................................................... 51



4.3.3. Development Strategy: Objectives and Areas of Action ............................................................. 54


4.4. Consolidation and Coordination of Structures of Public Administration (Component 4) ........... 55



4.4.3. Development Strategy: Objectives and Areas of Performance ................................................. 57


4.5. Enhancing Integrity in Public Administration (Component 5) ...................................................... 58


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4.5.3. Development Strategy: Objectives and Areas of Intervention ................................................... 60


4.6. Technological Modernisation and Innovation (Transversal Component A) ................................. 62





4.7. Monitoring, Evaluation and Communication (transversal Component B .................................... 65





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Table of Contents

Table 1– Services with a Greater Perception of Improvement by the InquiredErro! Marcador

não definido.

Table 2– Services with Minor Perception of Improvement by the inquired ........................ 31

Table 3 –Important/Crucial Aspects for the Satisfaction of Citizens and Companies ....... 33

Table 4– Aspects which are in need of Improvements/with room for improvements .... 324

Table 5– Mozambique in the Electronic and Participation Government Indexes 2010

(eGovernment and eParticipation 2010) .............................................................................. 38

Table 6 – ERDAP Impact Indicators and the respective goals Erro! Marcador não definido.

Table 7 – Action Areas of the Component: Professionalization of Civil servantErro! Marcador

não definido.

Table 8 – Indicators of the Components: Professionalization of Civil servant ................... 62

Table 9 – Action Areas of Decentralization Component 66

Table 10 – Indicators of the Component of Decentralization and Devolution Components 67

Table 11 – Action Areas of the Component: Improving the Provision of Services ............. 71

Table 12 – Indicators of the Component; Improving the Provision of Services ................. 72

Table 13 – Action Areas of the Component: Consolidation and Coordination of Public

Administration Structures ....................................................................................................... 76

Table 14 – Indicators of the Component Consolidation and Coordination of Public

Administration Structures ....................................................................................................... 76

Table 15- Action Areas of the Component: Enhancing Integrity in Public Administration 80

Table 16 – Indicators of the Component Enhancing Integrity in Public Administration .... 81

Table 17 – Action Areas of the Component: Transversal Technological Modernization and

Innovation ………………………………………………………………………………………85

Table 18 – Indicators of the Component :Transversal Technological Modernization and

Innovation ................................................................................................................................ 86

Table 19 – Action Areas of the Component :Transversal Monitoring, Communication and

Evaluation ………………………………………………………………….............................89

Table 20 – Indicators of the Component :Transversal Monitoring, Communication and

Evaluation ................................................................................................................................ 90

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Index of Figures

Figure 1– Documents which Constitutes the ERDAP ........................................................... 18

Figure 2– Disintegration of ERDAP (Short, Medium and Long Term) ................................. 19

Figure 3– Integration into Government Planning Cycle 19

Figure 4 –Mozambican Public Administration SWOT Analysis (Strength, Weekness,

Oportunities, and Threats) ...................................................................................................... 23

Figure 5– Distribution of Civil servants by Provinces ............... Erro! Marcador não definido.

Figure 6– Values ......................................................................... Erro! Marcador não definido.

Figure 7– Strategic Objectives ................................................... Erro! Marcador não definido.

Figure 8– Strategic Objectives and Corresponding ComponentsErro! Marcador não definido.

Figure 9 – Function to be Asserted ...................................................................................... 49

Figure 10 – Macro Objectives of Monitoring ......................................................................... 53

Figure 11– Development Components ................................................................................. 55

Figure 12 – The Time line of achievements and progress ....... Erro! Marcador não definido.

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Index of Graphs Graph 1– Number of Civil Servants per each 100 Inhabitants ........................................... 26

Graph 2– Civil Servants Sector of Activity ............................................................................ 27

Graph 3– Civil Servants Pyramid Age Groups ACivil servant28

Graph 4– Civil Servants by Province and by Sex .................................................................. 28

Graph 5 – The State Civil Servants by Province and Qualifications levels ......................... 29

Graph 6– Most Demanded Services ..................................................................................... 35

Graph 7– Level of Satisfaction with slope of services provided .......................................... 35

Graph 8–“Doing Business 2011” Ranking-Comparative AnalysisErro! Marcador não definido.

Graph 9–Evolution in “Corruption Perception Index” Ranking (2004-2010) ..................... 37

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Preface

Mozambique: Improving and strengthening reforms in the Public Sector

It is with great joy and satisfaction that we launch the Public Administration Development

and Reforms Strategy 2012-2025, which ensures the continuity of the Public Sector Global

Reforms Strategy implemented between 2001 and 2011, the results of which enable us to

take this qualitative leap towards the continued improvement of public administration in

Mozambique. The Public Administration Development and Reforms Strategy which we are

launching embodies our aspirations for the public sector until the year 2025.

With this strategy, we intend to build a public administration grounded in the meritocracy,

integrity and professionalism values, which are the key vectors for the gaining’s

consolidation brought about by the Public Sector Global Reforms Strategy. We envisage a

public administration system that is responsive to the challenges of socio-economic

development of our beloved Motherland, in which the Civil Servant proactively guides and

supports the citizen in his/her relationships with our public administration system, and

undertakes steps and measures to simplify service delivery procedures, processes and

mechanisms. The fighting against bureaucracy and corruption, in particular, will continue to

be the centre of our priorities as well as the opening and inclusive governance development.

Acknowledging the merit and importance of the Public Administration Development and

Reforms Strategy, we are certain that Reforms will continue to be fuelled by the energy of

its major actors namely public sector leaders and managers, civil servants, the private

sector, socio-professional organizations and our development partners. We entrust our

confidence upon them because they represent with no doubt the pillars for the consolidation

of our Public Administration.

The implementation of Public Administration Development and Reforms Strategy brings new

paradigms regarding to the relationship between the State and the Citizen, by which public

leaders and managers, civil servants and state agents are all called upon to renewing their

commitment to better serving the Mozambican public administration and the society in

general. Thus, the civil servant must continue to excel in his/her daily provision of services

to the public and grow aware to the fact that the most profound reforms start within one´s

self with change of attitude and behaviour towards the citizen who should be served with the

highest standards of service quality.

Maputo, 30 August 2012

Armando Emílio Guebuza

(The President of the Republic of Mozambique)

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EXECUTIVE SUMMARY

The Public Administration Development and Reforms Strategy -2012-2025 (ERDAP)

emerged from the need to operationalizing the Government Five-Year Programme (PQG)

2010-2014,taking into account the results achieved out of governance programme and the

implementation of Public Sector Global Reform Strategy (EGRSP) 2001-2011, with its

alignment with the objectives set forward in the Agenda 2025; the Action Plan for the

Reduction of Poverty (PARP 2010 - 2014) and the Millennium Development Goals (MDGs) in

the area of Governance.

This document lays out a vision for the public administration development in Mozambique

over the next 15 years, identifying key objectives to be achieved, an integrated approach to

the different sectors both at central and local levels, and a coordinated and synchronized

implementation to ensuring maximum synergies across various public institutions.

The strategy materialized in this document, is a result of a comprehensive discussions and

consultation process.

The Strategy is also supported by several transversal policies that have been defined and

are in implementation, such as the Mid-term Pay Policy, the Business Environment

Improvement Strategy 2008-2012, the Fight Against HIV and AIDS in the Public Service

2009 – 2013 Strategy, the Gender Strategy for the Public Sector 2009-2013, the Disabled

People in Public Service Strategy 2009-2013 and the Electronic Government Strategy.

The ERDAP was developed to meet the vision of "a Citizen-centred Public Administration,

one that promotes development and is geared towards the provision of quality services."

Next, the seven strategic objectives to be pursued by the Public Administration in an

integrated and transversal manner are outlined:

1. To provide the Public Administration with qualified civil servants;

2. Bringing Public Administration closer to the citizen;

3. Improvement of the quality of services;

4. Strengthen the Organization of Public Administration;

5. Promotion and dissemination a culture of integrity in the Public Administration and in the

society;

6. Use information and communication technologies and innovations to improve service

provision; and

7. Monitor the implementation and assessment of the results.

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The defined strategic objectives are clustered in development components, which reflect the

main areas of improvement of public administration in the next 15 years. Five main

components are defined:

Component 1 - Professionalization of Civil servant

Component 2 - Decentralization and Deconcentration

Component 3 – Improvement of Service Delivery

Component 4 - Consolidation and Coordination of the Structures of Public

Administration

Component 5 - Enhancing Integrity in Public Administration

Additionally, the strategy is supported by two transversal components that represent

elements of speeding up and implementation of the entire Plan:

Transversal Component A - Technological Modernisation and Innovation

Transversal Component B - Monitoring, Evaluation and Communication

The strategy is operationalized through a Five-year Action Plan, the first of which is to be

implemented between 2011 and 2014, to align it with the cycle of the Government's Five

Year Programme 2010-2014. Each action plan identifies the initiatives to be implemented,

its timeframe and implementation responsibilities. Action plans are further stretched out or

spread out into activity plans on an annual basis.

To ensure the involvement of all Mozambican public administration and the mobilization of

human and financial resources essential to the implementation of ERDAP, the Government,

through the Ministry of Public Service, will coordinate the process of monitoring the

implementation of the Strategic Plan.

The success of the implementation depends on the involvement of all sectors, including

external actors (development and social partners), contributing significantly to the

development of the country.

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INTRODUCTION This document defines an integrated and integrative strategy aligned with the

constant/permanet challenges of the vision of governance and development of the

Mozambican public administration. The elaboration of ERDAP took place on a participatory

and inclusive process involving various stakeholders (public, private, civil society) and at all

levels (central and local) through consultation meetings and seminars and work sessions.

This joint dynamic construction and interaction occurred throughout all the process of

ERDAP preparation.

To ensure the consistency of the Strategy, main documents and instruments have been

taken into account, namely legislative and planning instruments, mid and long-term

planning tools (national, sector, provincial and transversal instruments) as well as a review

of key international commitments.

1.1. MOTIVATION OF ERDAP

ERDAP emerged from the need to:

1. Ensure orientation and guidelines regarding major Government approaches on

governance geared to the consolidation of public administration through the

optimization of service delivery, building upon the momentum created by the ERGS,

thus contributing decisively to a sustainable development of Mozambique;

2. Ensure coordination between the various initiatives promoted by various actors in the

public administration, in view of its modernization to respond effectively to the

challenges of development and poverty reduction in the country.

3. Set goals that enhance the commitment of various stakeholders and strengthen the

credibility to the process of improving service delivery by Public Administration (PA);

4. Promote the mobilization of the various stakeholders both internal (sectors) and

external (development partners, civil society, etc.) ensuring comprehensiveness and

an inclusive process;

5. Enhancing the already started EGRSP-process of dynamic transformation towards a

Public Sector that is intended1 to be:

Agile, decentralized, (de)bureaucratized and simplified and focused on the

quality of public services, that are provided as close as possible to the citizen;

Modernized and with high levels of technology incorporation;

Democratized, with a high degree of institutionalization of participation, and a

high ability to respond to citizens demands either individually or collectively.

1The Public Sector Reform Program – phase 2 (2006-2011)

11

Transparent, both with regard to the use of public funds and other assets, as

well as to what refers to the procedures and evaluation of results;

Endowed with qualified personnel, professionalized and ready for change,

with a high sense of serving the public and of effectiveness and

accountability.

Notwithstanding the results already achieved, we recognize the existence of challenges,

thus the rationale for the ERDAP in order to overcome the challenges identified.

The ERDAP is not meant to be a rapture with the past reforms interventions, but rather it

intends to ensure continuity and consolidation of past reforms, that have been implemented

under the motto " The Civil servant to serve better the Citizen”

The motto adopted for ERDAP is the same as that established for the EGRSP since it

conveys the values and orientation foreseen for the period 2011-2025 and reassures the

pathway that has been followed so far.

1.2. RATIONALE OF ERDAP

The aim of ERDAP is to set a vision for public administration through 2025, guiding the

efforts of various organs towards a common cause and integrating the respective initiatives

as part of a coordinated effort.

Thus, ERDAP serves three main purposes:

Identify the strategic objectives and priorities for intervention for all Public

Administration in the next 15 years;

Specify which strategic activities contribute to achieving the objectives set, in a

horizon of 5 years;

Encourages the sharing of good practices and concerted interventions of the various

Public Administration institutions.

Documents Comprising the ERDAP

The following documents comprise the ERDAP:

(i) strategy document, which presents the vision, mission, values, strategic objectives

and main goals for the development of public administration in a

15-year period;

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(ii) action plans, which define the strategic activities (and timeframes) to be developed

for each period of 5 years and respective annual activity plans and budgets; and,

(iii) a communication plan, which outlines the communication strategy and

communication support for the dissemination of ERDAP.

Figure 1-Documents that constitute ERDAP

PLANNING CYCLE

The 15-year vision defined in ERDAP is disaggregated into action plans with a time line of 5

years of which there are presented to the initiatives that unite each of the components of

development and promote the development of defined indicators.

To promote the alignment of the Action Plans with the Government's 5-Year Program, Action

Plans are subdivided into three 5-years terms, 2011-2014, 2015-2019 and 2020-2024

respectively. The year 2025 will be reserved for global evaluation and strategic redefinition.

The Action Plan is further disaggregated into annual plans of activities at a more operational

level. These plans are in line with the Economic and Social Plan (PES), in the domain of

Public Administration.

Strategy Document, with a time line of 15 years, in which they are defined:

o Vision, Mission and Values of Public Administration

o Strategic Objectives and Main Goals

o Components of the Development Areas of Action and Performance Indicators,

o Strategy of Governance and Monitoring.

Action Plan

Communication Plan

ERDAP - Strategic Plan -

Operational Plan, for 5 years, which presents for each component and area of action the initiatives that, with their respective timeline and responsible people. The Action Plans are disintegrated into annual plans of activities.

ERDAP support document that aims to leverage the

operationalization composed by the Communication

Strategy, which identifies the target group and the focus of

communication, and the definition of communications support

materials.

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Figure 2- Desegregation of ERDAP (Short, Medium and Long Term)

The ERDAP is a flexible instrument as it is adjustable and updatable thorough the activity

plan, the Medium Term Fiscal Framework (MTFF), the Economic and Social Plan (ESP) and

of the State Budget (OE), which are tools to operationalize the Five-Year Plan of the

Government.

The ERDAP is also framed into the public planning cycle by promoting the alignment of the

components related to the development of Public Administration of different Provincial and

Sector-Base Strategic Plans.

Figure 3 - ERDAP in the Framework in Public Planning Cycle

GOVERNMENT’S FIVE YEAR PROGRAM

Action Plan for Porvert Redution

Medium Term Fiscal Framework (MTFF)

Economic and Social Plan (ESP)

State Budget (SB)

Integration of the

sector-base strategy

ERDAP – Action Plan

Other Strategic Plans

Integration of Goals and

objectives

Macro and Sector-

based Stages

Limit of Expenses

Consistency of budgeting with actions and policy objectives

Sector-based, Provincial and District

Strategic Plan

Medium Term Planning Annual Operacional Plans

Harmonization of Projects and

iniciatives

Resource Framework

Strategic Dimension

Operational

Dimension

ERDAP

Activity Plans

Action Plan

15 years vision document and strategic guidelines.

Operational Plan, for 5 years (3 to be developed during the period of the execution of ERDAP))

Operational Plan and Annual Budget (15 will be produced during the period of execution of ERDAP)

Longo term

Medium Term

Short Term

(…)

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DIAGNOSIS OF MOZAMBICAN PUBLIC ADMINISTRATION

The Public Administration is a set of organs, services, civil servants and State agents, as well

as other collective public entities that ensure the delivery of public services to citizens.

According to the 2nd Statistical Yearbook of the Civil servants and State Agents, the

Mozambican Public Administration, had in 2009 a total of 179,383 Civil servants and State

agents, excluding the defence forces and state security.

The current situation of Mozambican public administration results also from an ample

process of reforms initiated in 2001 with the launching by the Government, of the Global

Strategy for Public Sector Reform (EGRSP), aiming to guide public institutions through

improvements in service delivery, responsiveness to society, and towards a public culture of

integrity, transparency, efficiency and effectiveness.

A highlight of most significant reforms is outlined below:

The revision of the Organic Statutes and Personnel Tables they are important insofar

as they constitute the cornerstones in the rationalization of public institutions;

The expansion of basic services to the districts constitutes a key factor in increasing

service delivery timeliness. Moreover, simplified licensing of commercial and

industrial activities contributed substantial to improve the business environment in

Mozambique, the country image and its appeal for investors. In this context it is also

essential to highlight the importance of the “Balcões de Atendimento Único” (One

Stop Shops) in improving access and provision of public services;

The ongoing decentralization process demonstrates the strong commitment from the

Government to take the decision making process much closer to the citizen;

The big bet that has been made at the level of human resources demonstrates the

importance of professionalization of the Public Service. On the other hand shows a

strong tendency towards the growth of investment in education and training of

human resources at various levels, thus providing services more efficiently and

providing autonomy to various organs at the level of internal management. It is

essential at this component to highlight the importance of the consubstantiality of

Government Schools on the System of Public Administration Training (SIFAP) and

materialized by ISAP and IFAPAs and CEGOVs;

15

The level of efficiency improvement and financial management of the state, the

SISTAFE and its electronic application were prevalent in improving the transparency

of public accounts, the swiftness of execution of the State Budget and better

management. Moreover, the electronic tool e-SISTAFE made an important

contribution in the decentralization of funds from the state budget to the provinces,

enhancing their autonomy. Also adds to the revision of the State Procurement

process that created facilities so that at local level the participation of small

entrepreneurs in providing services to the State.

With regard to fighting corruption and improving the efficiency of the Courts, anti-

corruption laws packages were approved, and other legal instruments for acquisition

and contraction of public goods and services for public contracting of public works,

supply of goods and rendering of service to the state institutions. Decree No

15/2010, May 24th), as well as the creation of anti-corruption nucleus in state

institutions.

Nevertheless the fact that the Mozambican Public Administration has developed activates

with positive impacts, there are challenges which are and opportunities for improvement,

among which:

At the district level there are a number of challenges associated with lack of

adequate infrastructures, technical administrative capacity, due to the limited

number of qualified employees. Associated with these limitations is the poor

communication network in many districts, which limits the expansion of GovNet, e-

CAF and e-SISTAFE important tools in the strategic management of human resources.

Additionally, the level of proper revenues generated by the local organs is still low;

At the level of human resources, despite various efforts developed in their training,

there is still a desirable low average qualification and sometimes inadequate for the

real needs of the organisms;

In the fight against corruption it is necessary to establish effective internal control

mechanisms, as well as an adequate quantity and quality workforce, while at the

same time enhancing the monitoring and ensuring the involvement of all actors of

development;

The introduction of a more robust system of monitoring and evaluation and

capacitated resources in different levels, enabling a punctual monitoring and

decision making based on analysis of the actual impacts;

16

The above mentioned transversal financial constraints and factors, although there

are many policies and projects whose results will be beneficial for the entire public

sector, some need implementation that has been limited because of not having

means to do so.

In the table below, are systematized the main evidence identified through the SWOT

analysis (Strengths, Weaknesses, Opportunities and Threats) that influence the

development process of Public Administration in Mozambique.

Figure 4 – SWOT Analysis (strengths, weaknesses, opportunities, and threats) of

Mozambican Public Administration

Strengths

• Political will to fight corruption and embezzlement of funds

or properties of the State;

• Political Commitment in consolidation of public

administration through a broad reform process;

• Expansion of the Administrative Court;

• Revitalization of the State Administrative Inspection;

• Fundamental tools and methodologies for the development

of public administration already introduced;

• Approval of the location allowance as a result of salary policy

objectives that attracts settlement of qualified staff in the

recondite districts through attractive remuneration incentive

and reduction of length of service for the retirement;

• Continued commitment to professionalism of human

resources;

• Single Service desks already introduced in the expansion

process;

• Approval of 202 Lists of Personnel since 2007, including

those from the 128 districts;

• Process of decentralization in implementation;

• Improving of the efficiency and financial management of the

state, namely through the introduction of SISTAFE and its

electronic application;

• Introduction of information systems in the whole nation as a

way of promoting the increase of internal efficiency;

• Betting in the systems and innovation technologies, based

on GovNet (the Government Electronic Network)

Weaknesses

• Insufficient human conditions, techniques and materials

to ensure effective implementation of the legal

documents and methodologies created, and as well as

the process of decentralization and devolution;

• Number of employees and state agents with technical

training and higher education is still insufficient;

• Concentration of the most qualified Public

Administration staff in the Central Government of

Maputo City;

• Reduced coverage of internal audit and control is still

insufficient;

• Anti-corruption legislation is not comprehensive;

• Laws concerning misappropriation of funds or property

of the State outdated;

• Poor coverage of technological infrastructure and

information systems at the local level;

• Effective systems of evaluation, monitoring and control

still incipient;

• Financial restrictions that prevent the execution of many

of the initiatives.

Opportunities

• Economic growth of the country and greater ability to

generate and collect revenue internally;

• Ability to attract external funding and of technical and

political support fruit of the outcome and the definition of a

clear vision for the development;

• Active participation of the population in the governance of

the country through the open and inclusive presidencies;

• Increasing utilization of information systems and

technologies in the provision of services to citizens and the

Threats

• High weight of foreign aid component in the state

budget;

• Contraction of the economy at global and national level,

which could jeopardize the implementation of some

programs of modernization and development of public

administration;

• High illiteracy Index;

• Pandemic of HIV / AIDS and the impact on resource

consumption in the country and revenue generation;

17

promotion of internal efficiency;

• Adhesion of the country to international organizations and

the adoption of their legal instruments as the African Charter

on Values and Principles of Public Service that enhances

and directs the public administration of each country for

steering the rendering of quality service provision to citizens;

• African Charter on Democracy, Elections and Governance;

• Implementation of a program of technical and vocational

education in the country that will contribute to the success

of the component of professionalization;

• Young population, amenable to rapid absorption of a digital

culture, enabling a leap of development in a short period.

• Lack of transport, communications and energy

infrastructure;

• Need for large investments given the size of the

country’s and population dispersion;

• Civil servant running away to the private sector and non-

governmental organizations.

The ERDAP through its components and their areas of Action, presented in Chapter 4 as well

as the initiatives that will corporate it, cited in the Action Plans, aims to address the

weaknesses detected, bypassing the external threats to the AP and taking advantages of the

strengths and opportunities of the internal and external context.

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Cabo Delgado

10.322 (6%)

Nampula

20.942 (12%)

Zambézia

14.637 (8%)

Inhambane

13.965 (8%)

Maputo Cidade

37.108 (21%)

13.287 (7%)

Manica

11.488 (6%)

Tete

Niassa

10.666 (6%)

Gaza

20.129 (11%)

12.331 (7%)

Sofala

Maputo Província

15.508 (8%)

1.3. THE PUBLIC ADMINISTRATION – MAIN INDICATORS

1.3.1. Characterization of Civil servant

The Mozambican public administration conglobated according to the II Annual Statistics a

total of 179,383 civil servant. Its sector-based and geographical distribution, as well as a

breakdown by gender, age and level of qualifications provides a set of basic relevant

information for the definition of strategic guidelines.

Geographic Distribution

Civil servant are distributed by the Central Government, with a concentration in Maputo City

and are comprised of 24,978 employees (11%), and by the Local Public Administration

which has 154,405 employees (89%) who are assigned to provincial and district capitals.

The territorial distribution of Central and Local Public Administration is expressed by the

following figure.

Figure 5 - Distribution of Civil servant by Provinces

Despite the distribution of civil servant throughout the country, there is a higher

concentration, measured by the number of employees according to the number of

inhabitants in Maputo City, by the presence of the Central Government, and in the other

provinces of southern Mozambique.

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The graph below shows that in the northern provinces of the country, with particular

emphasis on Zambezia and Nampula with a high number of inhabitants, the number of civil

servant for every 100 inhabitants is below the national average.

Graph 1 - Number of Civil servant per 100 Inhabitants

Additionally, it is verifiable, a higher concentration of employees of Local Government in

provincial capitals. The provincial capitals concentrate on average about 36% of the civil

servant pertaining to the province (excluding Maputo City). It is worth to highlighting the

cities of Beira and Matola and concentrate more than 50% of civil servant of Sofala and

Maputo Province, respectively.

Sector-Base Distribution

Civil servant, although distributed by the various sectors of the economy are more

concentrated in key areas for the sustainable development of country: Education, Health,

Justice and Agriculture.

Despite deficiency in education compared to the existing needs it concentrates more than

50% of civil servant.

.

Graph 2 - Civil servant by Sector of Activity

0,52

0,54

0,61

0,77

0,82

0,85

0,97

0,98

1,01

1,32

2,92

Zambézia

Nampula

Cabo Delgado

Tete

Manica

Sofala

Inhambane

Gaza

Niassa

Maputo Província

Maputo Cidade

Educação55%

Saúde14%

Agricultura3%

Justiça2%

Outros26%

Average of the country = 0,88

Legend

Others 3%,

Justice 2%,

Agriculture 3 %,

Health 14%

Education 55%

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Distribution by Age and Gender

The majority of civil servant are still male, about 66.1% which represents 118,609

employees. With regard to age, over 50% of employees are between 26 and 41, as shown in

the figure below:

Graph 3 - Age Pyramid of Civil servant

Men Women

The gender imbalance is more outstanding in the provinces of the north and centre of the

country, as is visible in the figure below.

Graph 4 - Civil servant by Province and by Sex

In red: are women and in blue are Men

6.043

24.788

21.882

11.356

24.294

13.531

7.132

4.984

4.599

4.364

15.190

14.515

6.830

10.508

5.370

2.219

1.159

619

18-25

26-31

32-37

38-41

42-48

49-54

55-59

60-65

>65

Idade Mulheres: 60.774 (33,9%)Homens: 118.609 (66,1%)

74% 79% 77% 72% 69% 73% 68%59% 55% 56% 58%

26% 21% 23% 28% 31% 27% 32%41% 45% 44% 42%

Niassa Cabo Delgado

Nampula Zambézia Tete Manica Sofala Inhambane Gaza Maputo Província

Maputo Cidade

Mulheres Homens

21

Level of Qualifications

The qualification of civil servant is a key factor for the promotion of sustainable

development. In Mozambique employees with elementary skill level represent 24.2% and of

the basic level are the majority with 42.0%. Employees with medium and higher training

represent 25.7% and 8.1%, respectively.

Additionally, in 10 of the 11 provinces of Mozambique the percentage of employees with

higher education is still below the average 8.1% of the country, since the most qualified

employees are concentrated in Maputo City (about 57% of employees).

Graph 5 - State Employees and Agents by Province and by Level of Qualification

1.3.2. Evaluation of Services Provided

Satisfaction Evaluation Research of Public Services

The study was conducted in 2009, covering 12 Public Administration services, namely:

1. Licensing and certification of commercial activity;

2. Commercial registration;

3. School enrolment;

4. Registration of birth;

5. Criminal Record;

6. External consultations in hospitals;

7. Taxes Services - Income Tax of Individuals (IRPS); Income Tax of collective people

(IRPC), Value Added Tax (VAT);

8. Identity cards Emission Services;

26% 22% 27% 23% 20% 18% 24% 24% 23% 21%28%

47% 59% 48% 54%50% 49% 41%

49%43%

36% 21%

23%15%

20% 19%28% 29% 29%

24%30%

35%

29%

4% 4% 5% 3% 3% 4% 6% 3% 4% 8%

22%

Niassa Cabo Delgado

Nampula Zambézia Tete Manica Sofala Inhambane Gaza Maputo -Província

Maputo -Cidade

Superior Médio Básico Elementar

Legend: Blue -Higher, Red -Medium, Grey -Basic and Black- Elementary

22

9. Licensing of Contractors;

10. Issuance of Right to use and exploit Land (DUAT);

11. Licensing of touristic activity;

12. Driving licenses Issuing Services.

In this universe, 72% had knowledge of the Reform and 56% had "Good" or "Very Good"

opinion of its impact.

While for services with significant improvements, according to the perception of the

surveyed, it highlights the services provided in SSDs, the distribution of school books and

the number of vacancies in Primary Schools of 1st Grade (PS1), Primary School 2nd Grade

(PS2) and Complete Primary School (CPS) .Furthermore the consultations in hospitals is

registering improvements in terms of waiting time, cleanliness and hygiene.

Table 1 – Services with Greater Perception of Improvement by the surveyed

Services % of the surveyed who responded “Improved”

1. Services Rendered at the SSDs 83,6%

2. Free Distribution of school books 80,4%

3. Vacancies in PS1, PS2 and CPS 76,3%

4. Notary Services 72,5%

5. Hospital Services 69,7%

Inversely, the services that according to this study reported a lower perception of

improvement were of the provider of the entrepreneur, Clearance from the Administrative

Court and the setting of retirement allowance.

Table 2 - Services with Lower Perception of Improvement by the surveyed

Services % of the inquired which responded “is the

same” and it has “Deteriorated”

1 Provider of Entrepreneur 66,4%

2 Clearance from the Administrative

Court

59,8%

3 Setting of retirement allowance 55,6%

4 Promptness in trials 55,1%

23

5 Procedures for Opening Companies 55,1%

Other important conclusions that derive from the respondents to the study include:

− 56.8% consider that there has been decentralization in the public sector;

− 41.3% consider that the impact of restructuring want beyond the expectations in

some institutions;

− 71.6% know the Single Service desks;

− 85.8% consider that public services have improved their performance;

− 58.7% have not heard of Electronic Governance;

− 49.2% have a good image of the governance of the country;

− 68.5% consider that with the introduction of SISTAFE the public financial

management have improved;

− 70.3% think that with the introduction of new regulation of acquisitions, the purchase

of goods of public institutions have improved;

− 63.7% of employees report not having received specific training in their field of work;

− 93.2% of trained officers consider that this is contributing to the improvement of

quality of their work.

Evaluation Research of Public Services Satisfaction

Held in 2009, aimed to access the degree of satisfaction of citizens with regard to public

services at the national level, based on catchment of the perceptions and expectations of

"customers" (citizens and Companies) rendering to public services. It focused on an effective

sample of 9.465 interviewed people in all provinces of the country, and at the level of

Provincial Directorates, Hospitals, Schools, Registry Offices, Notary Offices and of Licensing

Centres and Single Service Desks (SSDs). In sector-based terms, it was analyzed the

services of the following sectors: Agriculture, Education, Industry, Trade, Tourism, Home

Affairs, Justice, Housing and Public Works, Health, and Transport and Communications.

Table 3 - Most Important Aspects for the Satisfaction of Citizens and Companies

Considered Aspects Nº of times considered “Extremely

Important”

1 The services are done in the promised time 22,2%

2 The Response Time to Administrative work 21,5%

3 The Civil servants correctly annotate the

information

21,0%

4 Documents issued are correct 20,5%

5 Confidentiality of information provided 19,6%

24

Considered Aspects Nº of times considered “Extremely

Important”

6 Waiting time in order to be attended 16,8%

7 The forms and documents are easy to read and

fill in

16,0%

8 Facility to make complaints when necessary 15,9%

9 The charged price for the services 13,0%

10 The Information of the booklets and posters is

clear and simple

11,8%

11 The information of the booklets and posters is

correct

11,2%

The survey confirmed the importance raised by the users of public services in the

component of time – compliance with deadlines and reduced time of administrative work,

as well as the absence of errors and preservation of confidentiality.

Table 4–Aspects in need of improvements

Considered Aspects Nr. of time classified as “Very Dissatisfied”

(0 and 1 on a scale of 0 to 5)

1 The service to be done in the time

promised

11,6%

2 The Response time to Administrative

work

11,2%

3 The facility to make complaints when

necessary

10,5%

4 The Information of the booklets and

posters is clear and simple

8,2%

5 The Information of the booklets and

posters is correct

7,4%

6 The civil servants correctly annotate the

information

7,2%

7 The price charged for services 7,0%

8 The forms are easy to read and fill in 6,6%

9 Confidentiality of information provided 6,5%

10 Documents issued are correct 6,3%

As for the actual performance of services as perceived by citizens and companies, the time

aspects and easiness in making complaints were considered the most critical and therefore

being the priority areas of action.

25

In Parallel, the research conducted at single Service Desks levels, made it possible to

identify which services are the most sought by citizens, and what are the levels of

satisfaction – in view of specific services and transversal aspects of rendering service.

Graph 6– The Most Sought Services

The most sought services in the SSDs are the licensing and certification of commercial

activity, followed by notary services, Business Registration and School Enrolment.

Licenciamento e certificação de

actividade comercial

29%

Notariado16%

Registo comercial

15%

Matrícula escolar

9%

Emissão de certificados

4%

Licenciamento de turismo

4%

Emissão de Bilhete de Identidade

4%

Emissão de NUIT3% Outros

16%

Emission of NUIT: 3%, Emission of ID: 4%, Licensing of Tourism: 4%, Emission of Certificates: 4%, School

Enrolments: 9%, Commercial Registrations: 15%, Notary Services: 16% and Licensing and Certification

of Commercial Activities: 29%

26

Graph 7 - Degree of Satisfaction with Aspects of Care

Regarding the degree of satisfaction of citizens and companies, it shows that most surveyed

people claim to be satisfied or very satisfied with the services in the SSDs. Still, with a view

to improvement, it appears that the time of completion of service - response time for

administrative work and waiting time to be attended - are the main concerns, as well as the

"dynamism of the employee", must therefore, be the aspects that deserve special attention.

1.3.3. International indicators

Business Environment

The simplification of processes and procedures operated by Mozambican Public

Administration has been working efficiently, most notably the creation of conditions that

favour private enterprise initiative.

The reforms undertaken by Mozambique in recent years have allowed the country to ascend

several positions in the categorization on business environment (ranking of Doing Business)

and currently at 126th position and being 12th country with strongest growth in the last 5

years.

0% 10% 20% 30% 40% 50% 60% 70% 80% 90%100%

Tempo de espera para ser atendido

Tempo de resposta do expediente

Simpatia

Dinamismo do funcionário

Apresentação do funcionário

Domínio dos assuntos

Soube ouvir as suas necessidades e preocupações

A conservação e limpeza da instituição

Muito insatisfatório Insatisfatório Nem Insatisfatório/ Nem Satisfatório Satisfatório Muito Satisfatório

Conservation and Cleanliness of the institution Learned to listen to their needs and concerns Domain affairs Presentation of the employee Dynamism of the employee Sympathy Response time of the administrative work Waiting time to be attended Very dissatisfactory, dissatisfactory, neither dissatisfactory, nor Satisfactory, Satisfactory, Very Satisfactory

27

Graph 8 – Comparative analysis of Ranking Doing Business 20112

According to the "Doing Business 2011" Mozambique is the eighth country of the

Community of Southern African Development Community (SADC), in terms of business

environment and the second country of the Community of Portuguese Language Countries,

just after Portugal. It is worth highlighting the positions obtained in terms of facilitating the

opening of a business and investment protection.

Transparency

Actions to reduce the incidence of corruption in public administration have been developed

lately, and these results already visible in the improvement of the position of the country in

the Corruption Perception Index (CPI) prepared by Transparency International Organization.

The CPI is annually calculated and varies between 0 (very corrupt) and 10 (very transparent).

From 2009 to 2010, the perception of corruption in the country was reduced (the index

increased from 2.5 to 2.7), permitting the rise from 130º to 116º place in the world ranking.

Nevertheless, the position of the country is still far from the desired, so one of the areas of

ERDAP will be the fight against corruption, continuing the actions already implemented in

the framework of the Global Strategy for Public Sector Reform and the Strategy to Combat

Corruption.

2 Official Name of World Bank Report.

34

52

76

126 128 133

157 163

África do Sul Botswana Zambia Moçambique Tanzania Malawi Zimbabwe Angola

Média África Subsaariana

28

Graph 9-Evolution in the Ranking Corruption Perception Index (2004-2010)

Electronic Governance

The networking connection of Public Administration, through GovNet, and the opening of the

Website of the Government constitute two of the main achievements of the country in the

field of Electronic Governance.

Table 5 – Mozambique In the index of the Electronic Governance and participation 2010

(eGovernment and eParticipation 2010)

2005 2008 2010

eGovernment Development Index,

Including:

146º 152º 161º

Online services 124º

Telecommunication Infrastructure 169º

Human capital 170º

eParticipation Index 30º 25º 97º

The analysis of international indicators, namely the eGovernment Index calculated by the

United Nations, reflects these efforts, but also allows seeing that there is still a significant

way to go in the modernization of public administration services.

In fact, although Mozambique is only placed in the 161st position of eGovernment Index

2010, it appears that on the sub-component online services, the country rises to 124th

position, whereas the Telecommunications Infrastructure and Human Capital sub-

components are the ones that require greater attention.

2,8 2,8 2,8 2,8 2,6 2,5 2,7

9097

99

111

126 130

116

2004 2005 2006 2007 2008 2009 2010

Índice Posição

Index Position

29

In parallel, the 97th position in eParticipation expresses success in the use of the internet to

provide information to citizens, interaction with stakeholders and involvement in decision-

making processes. However, the decline in this measure – which Mozambique was, in 2008,

the most positioned African country - reflects the difficulty in maintaining a dynamic of

innovation and that it pretends to resume.

30

STRATEGIC GUIDELINES

The Strategy of Reform and Development of Public Administration consolidates the

transformations since 1975, with particular focus from 2001, the year in which the Global

Strategy Reform for Public Sector was launched, in the sense of approximating the reality of

Public Sector the vision described in the 2025 Agenda.

In this context, ERDAP defines a 15-year vision that will guide the implementation of

activities of various sectors, structures and people, ensuring joint efforts around common

goals. In the field of consolidation of the Mozambican public administration it is a strategy of

consolidation and going deep into the results already obtained, namely with the

implementation of the Five-Year Program of the Government and the Global Strategy Reform

for Public Sector 2001-2011.

1.4. Vision and Mission

Vision

"A citizen-cantered Public Administration, promoting the development and devoted to

rendering of quality services."

Mission

"Ensure the provision of quality public services through qualified and motivated human

resources, efficient processes and integrated systems, based on a rigorous and transparent

financial management and in a consolidated structure, accountable and integrated and

coordinated action."

1.5. Values

Values guide the performance of public administration in pursuing its vision and mission and

must be observed by civil servant in the scope of its activity.

Figure 6 - Values

Continuity

Susteninable

Development

Modernization

VALUES

Meritocracy Imparciality

Accountability

Uniqueness

Profissionalism

Culture of exellent

service

31

The concepts that embody each value are shown below:

Culture of

Excellent Service

Citizen, Private Sector and Civil Society as the centre of

performance of Public Administration

Access to information, proximity and convenience

Meritocracy Valuing the attained result by competency

Impartiality Non-discrimination treatment, gender balance

Ethics and deontology, transparency and anti-corruption

Professionalism

Qualifications and development of competencies

Diligence and work culture

Civility and courtesy in the relationship with users

Accountability Results orientation and ability to execute

Productivity and performance culture

Continuity

Institutional Reinforcement

Document and knowledge management

Institutional Memory

Uniqueness Common purpose, coordinated planning and concerted action

Mobility

Modernization

Innovation and simplification of procedures Innovation

Information and Communication Technologies

Efficiency

Sustainable

Development

Sustainable Development • Promotion of economic

development, human and social

1.6. Strategic Objectives and Components Development

The strategic objectives identify the main guidelines of the institutions of the public sector,

in the areas which are transversal areas, in the next 15 years, clarifying the focus of

performance of Public Administration.

32

Figure 7 - Strategic Objectives

The persecution of the Vision, Mission and Strategic Objectives, described imply the

definition and implementation of actions by various agents of Public Administration. These

actions are framed in the development components and are detailed in areas of action.

Thus, the development components correspond to a set of guidelines aimed at fulfilling a

strategic objective. The basic components are complemented by transverse components

that aim to support and stimulate the implementation of the Plan. Finally, the areas of

action detail the components in terms of activities fragmented and similar among

themselves.

Adopting a Public

Administration of

qualified technicians

Approximating the

Public

Administration to

Citizens

Improving the

quality of services

Strengthen the

organization of

Public

Administration

Promote and

disseminate an

integrated culture in

the society and PA

Consolidating the

use of information

and communication

technologies

Monitor the

execution and

measure results

Estrategic

Objectives

33

Figure 8 - Strategic Objectives and Correspondents Components

Component 1

Professionalization of

employees and Agents of

the State

Adopt the Public Administration with qualified technicians - motivated employees and agents of the state, in adequate number, accountable and recognized according to their performance in the context of equal treatment and opportunities for the rendering of services.

Component 2

Descentralization and

Devolution

Bring the Public Administration closer to the citizen - Strengthening the role of the District while pole of development, through decentralization of duties, capabilities and resources and technical assistance by part of the central organs.

Component 3

Improvement of Quality

of Services

Improve the quality of services - performance commitments, through simplification of processes and procedures, integration between sectors and reinforcement of infrastructures.

Component 4

Consolidation and

Coordination of the

Structures of PA

Strengthen the organization of public administration - consolidation of the regulatory base, functional and human and of knowledge management, ensuring continuity and institutional memory and promoting integrated action according to the principle of Unitary State.

Component 5

Strengthening Integrity in

Public Administration

Promote and disseminate a culture of integrity in the society and in

Public Administration – Reinforcement of an inhibiting environment

of corruption practices, and ensure that state resources are directed

towards combating poverty and for the development of the country.

Component

Transversal A

Modernization,

Technology and

Innovation

Consolidate the use of Information and communication technologies

–improvement of services delivery, approaching the central and local

organs, integrating knowledge across sectors and supporting

streamlining of procedures.

Component

Transversal B

Monitoring,

Communication and

Evaluation

Monitor the execution and measure results – Promptness in

correcting of deviation, communicating on a regular basis the

accomplishments and their impacts and encouraging the sharing of

good practices and continuous improvement.

34

1.7. MAIN GOALS OF ERDAP

The Mozambican Government is strongly committed to the continuous improvement of the

service provided to the citizen and the whole environment associated to it as a lever of the

development of the country

Assuming this aspect as a goal, the ERDAP identifies a set of indicators of reference sets

concrete targets for each period of five years or for duration of each of the action plan.

The indicators identified allow strengthening the commitment and analyzing the impact of

the implementation of ERDAP in Mozambican society as a whole and, in particular, in Public

Administration. For this purpose indicators were defined whose sources are highly

referenced international institutions.

.

Table 6 - Impact indicators of ERDAP and respective targets

Impact Indicator Base Value Targets

2014 2019 2024

Degree of satisfaction of users

Source: Research Evaluation Satisfaction 2009

Reasonable

(2,9) 3,2 3,58

Good

(4)

Index of Obtunding Services

Source: Research Evaluation Satisfaction 2009 81% 84% 88% 92%

35

Perception of performance improvement of

public services by employees

Source: Survey of Opinion of Reform 2009

94% 94% 94% 94%

Degree of satisfaction of Civil servants

Source: to be defined ---- ---- ---- ----

Evolution of Business Environment

Source: Doing Business 2011 126 116 106 96

Evolution of Electronic Governance

Source: UN E-Government Survey 2010

0,2288

(161)

0,2782

(≈144) 0,3101

0,3420

(123)

Evolution of electronic participation (e-

participation)

Source: UN E-Government Survey 2010

0,1143

(97)

0,1286

(86) 0,2143

0,3000

(39)

Degree of Transparency

Source: Corruption Perception Index 2010 (TI)

2,7

(116)

3

(101)

4

(66)

5

(46)

Consolidation of democracy

Source: Democracy Index 2010 (EIU) 4,9 5,2 5,6 6

Regarding the direct evaluation of Public Administration and service to citizens, 4 indicators

were defined and their respective goals were set:

Degree of Users Satisfaction is currently rated as "Reasonable" (rank 2.9), should

develop gradually to "Good" (rank 4), and in the interim period it must reach the

current expectations of users (3.58);

Index of Services Availability, the average value obtained in 2009 was 81%, with the

province of Gaza obtaining the highest score 92%, which was set out as the national

target for 2024;

Perception of Performance Improvement of Public Services by civil servants and State

agents, Evaluated as positively by 94% of Civil servants in the Survey of Opinion of Public

Sector Reform held in 2009, a score to be maintained or increased.

Degree of Satisfaction of Employees and State agents, indicator to be evaluated on a

regular basis by an independent entity in the coming years, with a positive and

growing development goal;

Regarding the international indicators there are considered:

36

Development of the business environment, Mozambique did have good performance

having reached the 126th position in the report "Doing Business 2011", positioning

itself between the countries with the greatest growth in the previous five years. The

goal is to continually improve on this indicator down to the 1st hundreds (on the

average Latin America, North and the Middle East of Africa rate 96th place);

Evolution of Electronic Governance, measured in the e-Government Survey of the

United Nations, in which Mozambique reached 0.2288 in 2010 (161th place) which

contradicts the upward improvement tendency experienced to date. In 2014, the

country expects to match the average of countries in the East Africa sub-region

(0.2782), and the highest score targeted for 2024, set up at 0.3430;

Development of Electronic Participation (e-participation), an indicator in which

Mozambique scored high between 2005 and 2008, ranking as number one in Africa

and 30th-25th globally. The goal for this indicator is to reach the top ten of African

Countries in 2014. The current African reference score is 0.3000 belonging to

Tunisia who ranks number one.

Level of transparency of the country, measured by the Corruption Perception Index of

Transparency International. In 2010 Mozambique reached a value of 2.7 (116th out

of 178 countries). The target for 2024 is to reach a positive value (equal of greater

than 5) and position itself between African countries with a good reference (currently,

only Botswana, Mauritius and Cape Verde have values greater than 5);

Democratic Consolidation, measured by the Democracy Index of the Economist

Intelligence Unit. In 2010 Mozambique showed a value of 4.9 (99th among 167

countries) which ranked it as the hybrid regime (under 6). The goal for 2024 is to

reach a value of 6 and advance to the next level.

1.8. Critical Factors of Success

The success in the achievement of the strategy defined by ERDAP has subjacent a joint set

of critical factors that must be considered in all the phases of implementation, namely:

• Ensuring effective leadership;

• Strengthening of competencies;

• Strengthening of Schools of Government;

• Financial Capacity;

• Monitoring of the implementation.

The leadership in the framework of ERDAP presents two distinct perspectives: i) institutional

leadership, and ii) the individual leadership ability.

Ensuring Efective Leadership

37

The leadership of ERDAP falls within the Government competences through the Ministry of

Public Service (cf. Presidential Decree No. 13/2007 of 16 October).

However, sector-base leadership plays a critical role in the actual implementation of ERDAP.

1st it should ensure that sectors are in the driver seat of the overall process. Furthermore,

effective leadership is paramount in the processes of mobilizing human and material

resources and in ensuring key processes of planning, management, monitoring and

evaluation of progress and the achieved results.

Additionally, a critical success factor it to ensure the critical leadership competences and

confidence of senior leaders and managers particularly with regard to the management of

human resources and other public affairs.

Effective leadership competences will constitute the building blocks for an effective work

culture based on accountability for the implementation and results, high levels of motivation

and active involvement of all civil servants and State agents.

The Management of ERDAP is the responsibility of all the sectors of Public Administration at

all levels particularly in the development of abilities and competencies for its successfully

implementation.

Political and methodological oversight of ERDAP is under the responsibility of the Ministry of

Public Service, with particular emphasis to the cross-cutting issues.

Strengthening Competences

38

Figure 4 – Key Competencies to Ensure

Duties to be performed:

Ensure the implementation of policies, strategies and Transversal programs

integrated into the process of administrative modernization, promoting integration

with sector-based programs and the Global strategy of the Government;

Ensuring integration and promote operational alignment between the different

organs of public administration in the implementation of initiatives aimed at

modernizing the PA;

Manage the implementation of the modernization process of the PA and initiatives in

a stricter manner;

Promote integrated measures in order to promote professionalism, rationalization of

processes and procedures and change of attitudes in order to improve the provision

of service citizens;

Accompany and monitor the initiatives and indicators related to the process of

modernization of PA and its impact on the Mozambican society;

Communicate the process of modernization of the PA;

Promote auscultation and ongoing consultation of the civil society, private sector

entities and foreign entities and cooperation partners on matters related to the

performance of the Public Administration and Public Service;

Identify and study in close liaison with the various sectors of services and

representing organs civil society and the obstacles administrative modernization,

proposing concrete measures for solving this problems.

39

A specific training in Public Administration is essential for the development of Mozambican

Public Administration: it complements university and other levels of training that civil

servants already have, and prepares them to effectively respond to the context of public

administration requirements and culture, thus improving their ability to deliver quality

services.

In this context, special emphasis must be given to the development Schools of Government

as well as vocational institutions for training professionals to ensure the development of

critical public administration competencies.

It is therefore important to ensure that Schools of Government have the capacity to deliver

transversal vocational training programs, to all sectors, all geographical locations and to all

hierarchical levels of Public Administration.

The existence of financial capability is key in order to ensure implementation of ERDAPs

initiatives and projects.

The source of funding of ERDAP is the State Budget that can be supported by additional

funding mechanisms.

In this sense accountability becomes a central issues, which has been one of the goals of

governance in Mozambique, fostering stewardship in the use of public resources, ensure the

generation of impacts and improvements in social conditions.

The monitoring of implementation and assessment of impacts is critical, particularly in a

context of limited resources. It is necessary to "measure in order to develop", i.e. measure

for better management, ensure return of investment in terms of economy, efficiency,

effectiveness and usefulness.

The systematic monitoring of indicators and monitoring of project implementation is key not

Strengthening of Schools of Government

Financing Capacity

Monitoring of Implementation and Assessment of Impacts

40

only to assess the degree of implementation of ERDAP, but also to assess the evolution of

global indicators and the respective degree of goal attainment.

Figure 1 – Macro Objectives of Monitoring

The ERDAP is leveraged by a group of players (actors)

responsible for carrying out a set of defined initiatives.

It is important to continuously monitor the

implementation of initiatives;

The Evolution of Mozambique in the indicators of

impact of ERDAP is a way of promoting the image of

Country both nationally and internationally contributing

to attract investment;

The major beneficiary of ERDAP and of the

development of Public Administration is the citizen,

therefore its essential to promote its participation

throughout this process, as well as measure and monitor

their levels of satisfaction.

Degree of

implementation

of initiative

Involvement

of the

Mozambican

society

Evolution in

the Indicators

the of Impact

41

The monitoring process should serve not only to assess the degree of attainment of set

goals, but also to assess the functioning of the entire structure in a continuous learning and

improvement process.

2. Components of Development of Public Administration

The strategy for the development of Mozambican Public Administration is based on a set of

seven components. Of the seven components, five are vertical and reflect the main areas of

performance of Public Administration in the next 15 years:

− Component 1 – Professionalization of Civil servants and State Agents; Component 2

– Decentralization and Deconcentration;

− Component 3 – Improvement of Service Delivery;

− Component 4 – Consolidation and Coordination of the structures of Public

Administration;

− Component 5 – Enhancing Integrity in Public Administration.

The two transversal components represent the “accelerators” of these strategies,

constituting the levers of the strategy, and they are:

− Transversal Component A - Modernisation and Technological Innovation

− Transverse Component B - Monitoring, Evaluation and Communication

The seven components of ERDAP are in turn broken down into areas of performance which

express the specific aspects of performance and which will be materialized through a set of

strategic activities.

Finally, each area of performance is connected to one or more indicators of performance

that allow the measuring of the impact of implementing them.

42

Figure 2– Development Components

Professionalization of Civil servants

and State Agents

1.1. Empower Civil servants to perform their duties

1.2. Consolidate HR management tools

1.3. Strengthen meritocracy and recognize

performance

1.4. Train leaders in PA 1.5. Rationalize the allocation of HR

1.6. Motivate HR of the State

1.7. Ensure equal treatment and opportunities

Decentralization and

Deconcentration

2.1. Bring government services closer to the Citizen

2.2. Reform and empower local authorities

2.3. Attract qualified technicians to the Districts

2.4. Strengthen the decentralization of financial

resources

2.5. Support the development of local municipalities

2.

Improvement of the Provision of

Services

3.1. Further the simplification of processes and

procedures

3.2. Promote the integration of service delivery

3.3. Ensure proper conditions for service delivery

3. Consolidation and Coordination of

the structures of PA

4.1. Promote the continuity of public service

4.2. Ensure the preservation of institutional memory

4.3. Improve coordination of planning and execution

between sectors

4.

1.

Components:

43

2.1. Professionalization of Civil servants and State Agents (Component 1)

Provide the Public Administration with qualified technicians

2.1.1. Background: Achievements and Progress

The transformation of public administration in Mozambique is based mainly on the capacity

and attitude of its employees. In this context, this has been an area of focus since 2001 in

the framework of the Global Strategy Reform for Public Sector, with particular emphasis on

Phase II of the Reform and after the creation of the Ministry of Public Service.

In retrospect the following have been achieved since the implementation of public sector

reforms global strategy:

Creation and operation and expansion of Schools of Government, IFAPAs (2001) and

ISAP (2004) as institutions responsible for vocational education and training of civil

servants and State agents.

Approval of the National System of Human Resource Management (2007), adjusting

it to the new challenges of public service and features, among others, the sub-

systems of careers and remuneration, information of Personnel and training in Public

Administration;

Approval and implementation of the Mid-term Pay Policy (2008), including the

localization allowance;

Approval, review and implementation of various human resources management

regulations, among them the e-SIP (2007), the Career and Remuneration System

(2009) and Performance Management System (2009);

Review of the General Statute of Civil servants EGFAE (2009) and the its respective

rules and regulations (2010);

Realization of the general census of civil servants and state agents and development

of the Statistical Annual Yearbook (published in 2008 and 2010);

Development of cross-cutting strategies in the Public Service (2009), in areas such

as combating HIV & AIDS (2009), Gender (2009), and Disabled People (2010);

Approval of Housing Policy and Strategy (2011);

Approval of the Administrative Procedure Act (2011).

Strategic

Objective

44

Figure 7 - Timeline of the Achievements and Progress

The several initiatives undertaken have constituted together a good foundation for the

consolidation of a body of capable civil servants able to deliver quality services to the

costumers of public administration (citizens and private companies), with emphasis

particularly in the regulatory, capacity development and monitoring dimensions.

2.1.2. Current Situation: Challenges

The Public Administration in Mozambique comprises an universe of 179.383 Civil servant

and State agents, according to the 2nd Edition of the Statistical Yearbook of Public

Administration (published in 2010), and as mentioned earlier the developments in the field

of professionalization of Public Service have been remarkable.

Nevertheless, a set of significant challenges still need to be addressed, and they are:

Ensure gender balance in public Service, given that 2/3 of the civil servants were

men (66.12%) according to 2009 statistics;

Increasing the level of education of Civil servants and State Agents, given that only

8.1% of employees (2009) had higher education, this number being strongly

influenced by the particular situation of Maputo City, where 22. 2% of the employees

have at least a “licenciatura” degree;

Reinforce training in Public Administration, which is complementary to the university

training and which is professional, preparing employees for the day-to-day work in

areas such as human resource management, planning, management of State

inventory and financial management;

Link effectively career advancement to merit and experience, encouraging good

performance and the demand for specialized training in Public Administration;

Strengthening leadership competences, particularly in the component of human

resource management and supervision, and accountability for delivering specific and

2001-04

2007

2008

2009

2010

• Mid-term pay policy

• Career and Remunerations System

• SIGEDAP

• EGFAE and Rule and Regulation

• Transversal Strateges in PS

• Statistical yearbook

• HR Management System E-SIP

• Nacional System of HR Manament

• Creation of IFAPAs

and ISAP

45

set results, staff motivation, monitoring and evaluation of program implementation in

view of set objectives.

Planning the development of human resources in various sectors, ensuring that

training is aligned with corporate objectives and tied up to concrete needs in the

framework of their competencies, thus contributing to add-value and job enrichment;

Strengthen accountability and avoid potential apathy, through enforcement of job

descriptions ("terms of reference") and performance appraisal;

Adapt the staff tables to the requirements of duties, avoiding situations of imbalance

between allocation of staff (overloaded structures and structures with lack of

personnel) and promoting mobility in the Public Service;

Implement a culture of results orientation and accomplishment of objectives through

the implementation and monitoring of SIGEDAP at various levels of the Public

Service;

Integrate the different existent systems of human resource management in different

sectors, in particular e-SIP, e-CAF and e-Folha (electronic payroll);

Ensure updated, reliable and complete information about human resources of Public

Administration, identifying the typology of needed information, creating routines for

updating and ensuring regular monitoring of data quality;

Ensure that all bodies of public administration have Human Resource Development

plans and proceed with its implementation;

Improve the recruitment process in the Public Administration to assess not only the

academic curriculum but also the competences and experience;

Preparing the transition to retirement of employees at end of career, in order to

promote their self-esteem and sense of usefulness and take advantage of their

knowledge and experience.

46

2.1.3. Development Strategy: Objectives and Intervention Areas

The areas of intervention of the development component "Professionalization of Civil

servants and State Agents" reflect a continuity of initiatives implemented in the framework

of Public Sector Reform.

Table 5 - Areas of Intervention of the Component Professionalization of Civil servants and

State Agents

Areas of Intervention

1.1. Empowering employees and State Agents for the performance of their

duties

Strengthen training in Public Administration through the Schools of

Government, as part of plans for developing competences aligned with the

effective needs of the local and central organs and their respective

competencies;

1.2. Consolidate instruments of human resource management

Ensure the integration and the quality of data in the human resources

information system, as well as monitor and evaluate the implementation of

the tool of human resource management recently created or revised.

1.3. Strengthen meritocracy and recognize performance

Recognize and reward good performance in the framework of results

oriented and management by objectives approaches, contributing to the

deepening of the work culture and productivity.

1.4. Train leaders in Public Administration

Strengthen the competences in leadership and management, through the

Schools of Government, disseminating examples of professionalism and

excellent performance for the respective employees and motivating the

effective and efficient use of resources at their disposal.

1.5. Rationalize the allocation of human resources

Planning the needs and adjust the number of human resources

professionals identifying the job requirements and occupational profiles of

each function, and promoting the mobility of civil servant based on

professional careers.

1.6. Ensuring equal treatment and opportunities

47


Promote gender equality; ensure that there are opportunities for integration

of the disabled people and addressing the challenges of HIV & AIDS in the

Public Service through the implementation, monitoring and evaluation of

transversal strategies.

2.1.4. Performance Indicators

Performance indicators presented below, whose goals are references for the

implementation of each action plan, allow the monitoring and evaluation of performance of

Public Administration under the component Professionalization of the Civil servants and

State Agents.

Table 6 - Indicators of the Component Professionalization of Civil servant

Area of

Performance Performance Indicators

1.1

Annual number of employees trained by the Schools of

Government

Percentage of civil servant with Medium technical

professional training

1.2 Percentage of organizations of PA with Human Resource

Development plans

1.3 Percentage of organizations implementing the SIGEDAP

1.4 Percentage of managers trained in ISAP

1.5 Percentage of organisms with defined job descriptions

1.6 Percentage of Women in Public Service

Percentage of disabled people in the Public Service

2.2. Decentralization and Deconcentration (Component 2)

Bringing the Public Administration closer to the citizen


Strategic

Objective

48

The process of decentralization of public administration has been experiencing significant

achievements, aimed at transforming the district into the pole of development and into the

base of social and economic planning of the country. In this context, the following progress

is to be highlighted:

Approval and implementation of the Law on Local State Organs (LOLE) and its

respective Rules and Regulations;

Restructuring of the 128 District Governments, which will now run on an integrated

structure comprised by a minimum of 4 integrated district offices clustered on the

basis of each district characteristics, potential and needs;

The creation of 43 municipalities;

Creation of 128 District Consultative Councils, 397 Advisory Councils of

Administrative Posts and 1042 Local Authorities, ensuring community participation in

the planning of local development;

Establishing of the Framework for the Transfer of Functions and Competencies from

central to local authorities;

Approval of Mid-Term Pay Policy and, in particular, the location allowance;

Introduction of Investment Budget for Local Initiatives (OIIL), now the District

Development Fund (FDD), and the Investment Budget in the Districts;

Decentralization of funds for the roads, water, agriculture, education and health

sectors;

Deconcentration of Human Resources management competencies to Province and

District levels;

Progressive increase in funding from the State budget allocated to provinces and

districts;

Providing critical services at the provincial level (for example, issuing the biometric

passport) and district (issuing biometric identity card).

Thus, whether at the level of provinces or at the level of Districts, there has been a

continuous reinforcement of responsibilities and resources, bringing the decision and

provision of services closer to the beneficiary, the citizen.


The process of decentralizing service delivery competencies requires the strengthening of

interventions undertaken so far.

Of particular importance is the Policy and National Decentralization Strategy which is under

preparation, and is expected to clarify the vision of the government on decentralization in

Mozambique and to bring a more integrated and consolidated perspective, so as to

49

generate synergies, rationalize resources and efforts put into decentralisation and shed light

into the path to follow in the framework of decentralisation.

Thus, the main challenges in this area include:

Approve and implement the Policy and National Decentralization Strategy;

Ensure equitable distribution of staff between Central and local levels to ensure the

representation of the state at all levels;

Attracting qualified personnel for Local Government Organs, through a combination

of monetary and nom-monetary incentives;

Improve the strategic and administration management of human resources at the

local level, in order to support the attraction, retention and development of native

staff, including on-going training of human resources, using mechanisms of distance

learning;

Strengthen the capacity for planning, organization, management and accountability

by part of staff and leaders of Local Government Organs, creating the conditions for

the transfer of a more significant financial resources and ensuring the sound

management of public funds;

Strengthen the decentralization of financial resources for Local State Organs,

ensuring that the deconcentration of competences is accompanied by the allocation

of the funding necessary to for the implementation;

Develop the capacity to generate revenues of the Local organs, which are

complementary to the resources transferred from the State budget and strengthen

their autonomy and capacity to perform their duties;

Ensure integration of the electronic network of local government Organs at the

district level, promoting integration and sharing of information, data and systems;

Supporting Local Organs in the use of information and communication technologies,

to enable the use of systems that support the provision of services or back-office

(e.g., e-SISTAFE);

Investing in infrastructure and equipment for the provision of services at the level of

local State Organs, in order to respond more effectively to the needs of the

population.

2.2.3. Development Strategy: Objectives and Area of Performance

The areas of intervention in the decentralization component aim to accelerate the process of

decentralization and deconcetration of competences and on the necessary capacity building

of Local State Organs in terms of human resources, infrastructure and budget.

50

Table 9 - Areas of Intervention of Decentralization Component


2.1. Bringing government services close to the citizen

Continue the process of deconcetration of competences ensuring that

decision making is as close as possible to the citizen, identifying which

services to be decentralized and defining and implementing a program of

transfers of functions and associated resources.

2.2. Reform and empower Local State

Adapting the Provincial structures and consolidate the District structures

empowering them to provide public services, according to the

decentralization of competences, based on planning and efficient

management of resources.

2.3. Attracting qualified technicians for the Districts

Consolidate existing policies to encourage the mobility of qualified staff, at

the levels of retention, relocation and recruitment (development, career

development and performance Evaluation).

2.4. Examine thoroughly the decentralization of financial resources

Ensuring increased allocation of financial resources within Local State

Organs and municipalities which ensures the decentralization of

competences, ensuring the necessary control mechanisms.

2.5. Support the development of local governments/autarchies

Contribute to the improvement of public services provided by municipalities

through technical assistance conducted by Central Organs, without

compromising the autonomy of municipalities

.


The performance indicators presented below allow the monitoring and evaluation the of

performance of Public Administration in the framework of decentralisation component.

Table 10 - Indicators of Decentralization Components

Area of

Action Performance Indicator

2.1 Percentage of public services available at the District level as a ratio of

all services that should be available ;

51

2.2 Percentage of locally generated revenues (municipalities/local organs);

2.3

Percentage of civil servants and state agents with higher education

deployed at local level;

2.4 Percentage of State budget transferred to the provinces

Percentage of State budget transferred to districts

2.5 Average number of public services provided locally as a ratio of all the

services that should be provided

2.3. Improving the Provision of Service (Component 3)

Improving the quality of services


The interventions undertaken taken in this area since 2001 have emphasised citizen-

centeredness. In this context, actions focused on ensuring timeliness, access and

convenience in service delivery.

The following interventions are worth highlighting:

Creation of One-Stop-Shops and its expansion, both in terms of provinces (all

provincial capitals), or in terms of services;

Approval of Juridical Regime of the Simplification of Licensing of Economic Activities;

Reduction of time for issuing of critical documents, which includes:

o The Identity Card (from one year to 15 days);

o The Driving Licence (45 days to 15 days);

o Police Clearance Certificate (from 60 days to 5 days);

o Birth Certificate (from 10 to 2 days)

Reduction of waiting time for acknowledgement of the Administrative Court to less

than 30 days;

Reduction of the overall waiting time for admission in the Emergency Services and

External Medical appointments in public hospitals;

Design of a Monitoring and Evaluation System for the Business Environment Strategy

(in operation);

Installation in Provincial offices of a Software to survey User’s Satisfaction,

Installation in all One-Stop-Shops of Electronic Terminals to monitor customer

satisfaction;

Strategic

Objective

52

As a result of these and other interventions there have been an improvement in the quality

of services as indicated by citizens perceptions expressed through citizens satisfaction

survey undertaken in 2009.

In addition, interventions contributed to improve the ranking of the Country in the Doing

Business survey published by the World Bank, moving from 137th position in 2006 to 126th

in 2011, with a remarkable ratings of 65th and 44th for the categories facility of opening

business and protecting investors respectively.


The obtained results encourage the continuation and expansion of efforts in the area of

service delivery. There are however challenges to be addressed, namely:

Concentrate services to reduce time and cost required for the citizen to gain access;

Expand the One-Stop-Shops both in terms of services offered and in terms of

geographic coverage;

Consolidate the change of attitude of the Civil servants before the citizen towards a

culture of service excellence in which the citizen is the "customer" and “raison

d'etre” of public services;

Increasing the responsiveness of service delivery, expanding and further improving

current provision standards towards standardization across the country;

Addressing the weaknesses identified in the 2009 customer satisfaction survey

particularly regarding access to certain services, the time of the service, meeting the

deadlines indicated to the user and the fair treatment of citizens, as well as the

disclosure of norms and standards of service;

Set performance targets and standards for public services, which are effectively

monitored and that are connected to the performance evaluation systems and of

career and remuneration, in order to institute orientation for results and stimulate

continuous improvement;

Implement regular mechanisms of evaluating service delivery by the "customers"

(citizens and companies), since the current forms of evaluation are predominantly

internal (self-evaluation by the Public Administration) and performed with reduced

frequency;

Improving working conditions in public services locations, at the level of

infrastructure and equipment, minimizing the situations where the existing means

53

affect the quality of services provided, the performance of employee and the services

to citizen.

54

2.3.3. Development Strategy: Objectives and Areas of Action

The areas of intervention in the component improving service delivery complement the

activities that have already been developed by various sectors in the process of Public

Sector Reform.

Thus, besides consolidating simplification of processes and procedures, reduction of waiting

time and expanding on the concept of One-Stop-Shops, the focus will be on defining and

implementing service delivery standards for each service and its continuous monitoring,

accompanied by greater evaluation of services by their receivers.

Table 11 - Areas of intervention of the Component Improvement of Service Delivery


3.1. Simplification of processes and procedures

To continue the simplification of processes and procedures related to the

provision of public services, with a focus on provision of information, in

facilitating interaction, and reducing waiting time and increase convenience.

3.2. Promote the integration of Service Delivery

Disseminate the concept of Single Desk Service to other areas of the public

service in order to increase the convenience of services to citizens,

supported by the sharing and the circulation of information in the sectors and

across different sectors.

3.3. Ensure proper conditions for the Provision of Services

Ensure that infrastructure and equipment used in the provision of services

are appropriate, strengthening the capacity of public administration and the

civil servant and safeguarding the comfort and security of the citizens.

3.4. Define and monitor service standards

Adopt practices of continuous improvement by defining service standards

(attendance and response times, processing errors, etc.), Focusing on critical

services, ensuring its constant monitoring.

3.5. Evaluate the provision of services through their user

Complement the internal monitoring with greater and more frequent

inclusion of users in the process of evaluation of the quality of services

provided to them and setting goals to be achieved.


Performance indicators presented below, will allow monitoring and evaluating the

performance of Public Administration under the Component Improvement of Service

Delivery.

55

Table 12 - Indicators of the Component Improving Service Delivery

Area of


3.1 Number of processes and necessary documents by service

3.2

Average waiting time in services defined as critical

Number of services available in the Balcões de Atendimento Único

(BAUs)

Percentage of districts with (BAUs)

3.3 Percentage of infrastructures of services delivery whose rank according

to users is equal to or greater than 3

3.4

Percentage of services with service charters;

Percentage of services with the degree of implementation of service

charters above 95%

3.5 Percentage of services with degree of satisfaction equal to or greater

than 3

2.4. Consolidation and Coordination of Structures of Public Administration (Component

4)

Strengthen the organization of the Public Administration


One of the priorities of the reforms processes was the restructuring of ministries at the

central level. Main interventions in this context was a process called functional reviews.

Main achievements in this area were:

Strategic

Objective

56

Conducting functional analysis of all Ministries in order to ensure clarity in their

mandates, transferring competences, functions and resources of the Central Organs

to the Local Organs, and outsourcing of non-core functions;

Approval of 202 Tables of Personnel since 2007, including the 128 of the districts;

Approval 28 Organic Statutes since 2008;

Creation of the Ministries of Planning and Development, Science and Technology,

Public Service, of Combatants;

Restructuring of Ministries;

Revaluation of Inter-ministerial Commissions (from 41 to 19 in 2007);

Recruitment and appointment of Permanent Secretaries of Ministries through public

tender and signing of performance agreements;

Approval and implementation of the Strategy of Information Management and the

National System of State Archives (SNAE).

As a result of these and of other iniciatives, the central agencies have strengthened their

role as emitters of public policy, also creating the conditions for the gradual implementation

of decentralization to local organs.


Following up on undertaken restructuring, it is important to consolidate the structures of

Public Administration by ensuring that agencies operate regardless of complicated changes

that may occur, acting on people, systems, laws, procedures and management of

documents.

The Improvement of the coordination of activities between the various Ministries is also a

priority, minimizing the tendency for the creation of "silos", especially with regard to

transversal matters.

Finally, the evolution of society and the decentralization process underway discourage the

definition of rigid structures, so the functional analysis and structural adjustments

undertaken should not be seen as concluded processes, rather, they should be open to

readjustments as needed to avoid the stagnation Public Administration. Under this

component the following challenges where defined:

Prioritise continually the rationalization of the administrative structures in order to

make it effective, efficient and less onerous;

Consolidate the structures of public administration in order to ensure that the

administrative structures of the State operate regardless of the changes in the

political power;

57

Create a regulatory basis, documentation and procedures that support the continuity

of Public Administration, so that changing of people does not lead to loss of

knowledge of how the public sector functions;

Separate clearly the positions of management and leadership with a technical

character of the positions of trust, ensuring stability, under the principles of

competitiveness and meeting objectives of performance;

Promote the ongoing adequateness of the structures of Public Administration, to the

challenges brought by the development of society and the increasing transfer of

powers to local organs, observing principles of rationality in view of activities to be

developed and available resources;

Strengthening the coordination of sector-based policies, especially in the transversal

components, avoiding compartmentalization of the activity of the Ministries.

2.4.3. Development Strategy: Objectives and Areas of Performance

The areas of intervention of this component are the result of activities undertaken within the

framework of the reform process, particularly with regard to the functional analysis and

restructuring.

Table 13 - Areas of Intervention of the Component Consolidation and Coordination of

Structures of Public Administration

Areas de Action

4.1. Promote continuity of public service

Ensuring the existence of a professionalized Public Administration with a

regulatory base, functional and stable in human terms of, which should be

the guarantee of the capacity of the provision of services, regardless of

changes of the holders of the public office.

4.2. Ensure the preservation of institutional memory

Consolidate the implementation of information management systems and

Archives in Public Administration and create conditions for its modernization,

promoting knowledge management and access to information by part of the

civil servant and the society in general.

4.3. Improve coordination of planning and execution between sectors

Strengthen the mechanisms of articulation and integration of sector-based

policies in planning and execution, in the phases of planning and execution,

assuming the various components of the Public Administration as being part

of a single entity that exists for a common purpose.

58


The performance indicators presented below, allow the monitoring and evaluation of the

performance of Public Administration in the process of Consolidation and Coordination of

the Structures of Public Administration.

Table 14 - Indicators of the Component Coordination and Consolidation of the Structures of

Public Administration

Area of Action Indicator of Performance

4.1 Basic Law of Organisation of Public Administration approved

4.2 Percentage of organisms that implement SNAE

4.3 Approval and Implementation of the National Development Strategy

2.5. Enhancing Integrity in Public Administration (Component 5)

Promote and disseminate a culture of integrity in the society and in Public

Administration


The creation and implementation of e-SISTAFE (Financial Management System of the State)

by the Government constitute one of the main achievements in this area in order to ensure

the integrity and transparency in financial transactions of the State, avoiding the of use cash

between the public sector and citizens and companies. The connecting of all Management

office of central and provincial level to e-SISTAFE and the roll-out to the District level (over

50 districts already connected) contributed to greater rigour to financial management at all

levels.

Other achievements in the framework of improvement in financial management include:

Revision of Decree No. 54/2005 of December 13, revoked by Decree No. 15/2010

of 24 May, which approves the Rules and Regulation for Contracting Contractors of

Public Works, Supply of Goods and Provision of Services to the State. As a result of

Strategic

Objective

59

legislative changes in 2010 about 70% of acquisitions of goods and services were

made through public tender;

Approval of the Strategic Plan of the Activity of Administrative Auditing and Inspection

of the State;

Revitalization and the increase of inspection activity by the State;

Establishment of the professional body of accountants and auditors;

Beginning of the decentralization process and strengthening of the capacity of the

Administrative Court and swiftness of its activities;

Realization of the National Survey on Corruption and Good Governance in the Public

Sector (Basic Research);

Approval of a legislative package on Integrity and Fighting Against Corruption;

Introduction of the Training Manual of Development Observatories and Local Advisory

Councils and development of training sessions with focus on issues of monitoring;

Anti-corruption communication campaigns;

Development of e-Folha, in the framework of SISTAFE, of calculating and processing

salary of the State.


The country has undertaken a substantial effort at the legislative, strategic and operational

to enhance integrity, transparency and efficient management of resources. For the future it

is essential to further these initiatives as well as to promote an effective and efficient public

administration that provides quality services to the citizen. The challenges in this area are:

Simplify and communicate the procedures and status of the processes, ensuring

understanding of the procedures by the user and reducing the opportunities for

misconduct associated with systems weakness and poor knowledge of requirements

from the part of service users;

Improving quality in the provision of services to citizens, ensuring speedy provision,

especially in critical sectors such as, Justice, Health, Education, Interior and Finance;

Intensify preventive education related to the fight against corruption, especially

through raising awareness and systematic communication;

Ensure that the civil society has an active role in monitoring the interventions to

combating corruption through reinforcement of anti-corruption centres of ministries

and other public institutions;

Train consistently, judges, investigators, managers of human and financial personnel

in order to improve their performance;

Strengthen disciplinary and criminal accountability of civil servants and state agents

involved in acts of corruption or misuse of funds or property of the State;

Integrate anti-corruption education in the school curricula;

60

To continue the process of reforms of anti-corruption legislation, aimed at

strengthening the role of the Central Office for the Fight Against Corruption, clarify

what constitutes a conflict of interest, criminalize illicit enrichment, fight the influence

peddling and embezzlement of funds and protect witnesses and denunciatory, in line

with international agreements ratified by Mozambique;

Train in a systematic and continues way the structures of prevention, dissuasion and

fight against corruption, with technicians (including magistrates);

Generate a greater involvement of all the Public Adminstration in the implementation

process of rules and procedures for the acquisition and public procurement of goods

and services;

Ensure efficient and effective systems for public procurement of goods and services

adapted to the challenges of the country, promoting efficiency gains and real savings,

whether by technological development or by the profits of scale in procurement of

goods and transversal services.

2.5.3. Development Strategy: Objectives and Areas of Intervention

The defined areas of intervention for the Component Enhancing the Integrity in Public

Administration is designed to respond to the constraints and identified challenges, ensuring

the involvement and commitment of the society in the prevention of corruption, as well as

accountability in the framework of efficient management of public resources.

Table 15 - Areas of Intervention of the Component Enhancing Integrity in Public

Administration

Areas of Action

5.1. Building a System of Public Integrity

Promote the integrity, ethics and citizenship, involving the Public

Administration, the education system, families, religious institutions and

the private sector in the prevention and dissuasion of corruption, with

special focus on exemplar leadership.

5.2. Increase information about the conditions of provision of public services

5.3. Ensure that citizens know and understand the rules, costs and deadlines

of the provision of public services and encourage the reporting of cases

of infraction, especially in sectors considered as critical.

5.4. Enhance the integrity, transparency and the fight against corruption in


Increasing the efficiency of financial and patrimonial management

through strict budgetary, practice of accountability, transparency in the

61

Areas of Action

acquisition process and management of public property.

5.5. Promoting a legal environment inhibitor of corruption practices

Implement a legal environment which reduces the discretionary powers

and to promote the celerity of services provided by civil servant, through

the simplification of procedures and in the PA for the celerity of the legal

requirements necessary for the formation of a process.

5.6. Strengthening and empowering the structures and mechanisms of the

prevention, dissuasion and the fight of corruption

Ensure the capacity of proactively identify problems and of response to

situations identified by the citizen and the central and local structures,

discouraging the practices of corruption and increasing confidence in



Performance indicators presented below will allow the monitoring and evaluation of

performance of Public Administration in the framework of the component Enhancing

Integrity in Public Administration

Table 16 – Indicators of the Component Enhancing Integrity in Public Administration

Area of


5.1

A system of integrity Developed

Percentage of students with knowledge about matters of ethics,

integrity and citizenship in their academic curricula;

5.2

Percentage of denunciations of corruption and Embezzlement of State

funds;

Report on the process of petitions submitted;

Systematic disclosure of Report on Disciplinary Responsibility;

5.3

Percent of public services contracted through adjudication by public

tender;

Percentage of public companies that publish their accounts report;

5.4 Degree of dissemination and knowledge anti-corruption from the part

of civil servants and State agents;

5.5 Percentage of institutions audited by an appropriate entity.

62

2.6. Technological Modernisation and Innovation (Transversal Component A)

Consolidate the use of information technologies and communication


In the National Report of the United Nations Development Program (UNDP) Mozambique,

under the theme "The Role of Information Technologies and Communication in the

Achievement of the Millennium Development Goals", is referred that "from the point of view

of governance, ITC is one of the key vehicles of Public Sector Reform and still contribute

significantly in the transparency process of acts of governance and democratization."

The approval of the eGovernment Strategy in July 2006 represented a milestone in the use

of information and communication technologies in supporting the provision of public

services, with significant international recognition. In fact, the United Nations report on

eGovernment of 2008 placed Mozambique in the 25th position respectively in the category

of e-Participation, in a total of 179 member countries.

The activities developed since then have focused mainly on infrastructure, the creation of

the Government Electronic Network (GovNet) that in addition to ensuring connectivity

enables interoperability of a wide range of services based on the Internet and Intranet, and

applications (e-SISTAFE) and with greater focus on the central structures of Public

Administration.

Thus, the major achievements of technological modernization in the public service were:

Approval of the eGovernment Strategy;

Development of GovNet, electronic government network for data communication,

covering 173 Central Government institutions and Provincial Governments;

Creation of Provincial Digital Resource Centres (PDRCs), currently functioning in eight

provinces;

Implementation of Government Portal;

Identity Card Biometric System available in all provinces and in several districts;

Introduction of the issuing of the biometric passport;

Introduction of the System of Issuing of Biometrics Driving Licence;

Implementation of the System for Industrial and Commercial Registration and

Licensing;

Social Security Management System under the National Institute for Social Security

(INSS);

Implementation of Phase 1 of the Land Management Information Management;

Strategic

Objective

63

Capacity Building.


To achieve the motto adopted for the Strategy of eGovernment - "Brining the Public Service

Close to the citizen" the following challanges are in order:

Developing the eGovernment progressively into the internet and evolve into a

transactional and subsequently transformational, promoting the provision of public

services and bringing public administration closer to the citizen;

Ensuring adequate levels of literacy in Information and Communication Technologies

(ICTs) in the Public Service;

Reducing the digital gap between the capital and the rest of the country, developing

and expanding infrastructure to support and promote ITCs trough district

governments level;

Provide a single portal with online services directed to the citizen, integrated on the

platform of interoperability of the Government;

Promote the development of local content and enable public access to government

information and services at the level of Districts and Municipalities;

Create a regulatory environment conducive to the development of society, of the

information and communication, particularly through the adoption of a Law on

Electronic Transactions, by the competent organ;

Introduce and articulate in the sector-based strategic plans the component of ITCs as

well as promoting the alignment between bodies with competences on the area of

systems and information technologies in different sectors;

Ensure all the electronic support of all financial transactions and State taxation,

integrating it in the Platform of Interoperability of the Government;

Computerize records and develop management systems that ensure high reliability

and availability of information, as well as greater efficiency and effectiveness of

Public Administration bodies;

Integrate data about Civil Registration Identification, in an authoritative source for

common use by all public sector organs, namely the Identity Card, the Passport, a

Residence Permit (DIRE), the Single Tax Identification Number (NUIT), the Vehicle

Registration and Human Resource Management.

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In order to overcome the identified challenges there were defined four main Areas of

intervention within the transversal component Technological Modernization and Innovation,

as presented below.

Table 17 - Areas of Action of the Component Transversal Technological Modernization and

Innovation

Areas of Action

A.1. Promoting proximity between central and local organs

Extend the Government's electronic network to all districts and strengthen the use

of information technologies and communication at provincial and district levels,

reducing digital asymmetries between capital city and the rest of the country.

A.2. Increase the use of information and communication technologies

Increase the use of information and communication technologies in the activities

of various sectors, ensuring the inclusion of the component ITCs in the sector-

based strategic plans and the creation of the technological competences in the

Ministries.

A.3. Ensure the integration and Sharing of data and knowledge

To dynamize the sharing of common data in the systems of Public Administration

and promote the coordination among organs of information technologies of various

sectors in order to create cooperation and sharing of good practices.

A.4. Facilitate the provision of services, swiftness and simplifying processes and

procedures

Leveraging the gradual and sustained transformation of processes of provision of

public services through the introduction of supporting technologies and dynamize

the process of dematerialization and promotion of online services (website), in the

context of an appropriate legal framework.


The performance indicators presented in the following table, whose goals are defined as a

starting point for the implementation of each action plan, permits the monitoring and

evaluation the performance of Public Administration in the ambit of the component

transversal Technological Modernisation and Innovation.

Table 17 – Indicators of Component Transversal Technological Modernization and

Innovation

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Areas of


A.1

Percentage of districts connected to GovNet

Percentage of district governments with e-SISTAFE in operation

Percentage of districts with community multimedia centres

Percentage of District Governments with online presence

A.2

Average number of employees with higher education linked to ITCs by

ministry

Percentage of Strategic Plans developed that incorporate ITC

component

A.3 Number of systems operating in an integrated form

A.4

Number of services available online

Percentage of provincial governments that provide online services

Percentage of district governments that provide online services

2.7. Monitoring, Evaluation and Communication (transversal Component B

Monitor the implementation and measure results


In the sphere of implementation of public sector reform, efforts were made to monitor the

execution and evaluate the results, having been also developed a set of actions and

instruments of communication:

Semi-annual reports to monitor the implementation of the Public Sector Reform;

Definition and monitoring of indicators of the time of provision of key services;

Satisfaction Surveys and tools (December 2009);

Conducting an opinion study on Public Sector Reform;

Monitoring and Evaluation System for the Business Improvement Strategy;

Installation of Electronic Terminals of Citizen satisfaction Evaluation in all BAUs;

Monitoring and Political oversight by CIRESP;

Conducting Dissemination Seminars of the results of the implementation of the

Public Sector Reform;

Strategic

Objective

66

Creation of communication tools of the Reforms, with the involvement of rural level of

community radios and the Portal of Reform.


Despite the monitoring and evaluation tools already developed and implemented, it is

essential to strengthen the culture of "accountability" to further effective implementation.

Thus, the major constraints and challenges within the sphere of monitoring, evaluation and

communication are:

Leverage the implementation through the monitoring, i.e., monitoring must have as a

corollary not only the monitoring of the implementation, but also the definition of

concrete actions in order to overcome constraints and celerity of the implementation;

Strengthen accountability on the basis of monitoring results, i.e., institutions and

individuals must be accountable of results;

Ensure decentralized and permanent monitoring of the defined measures promoting

an integrated vision and sharing experiences;

Define specific, measurable and tangible goals and actions, distinguishing monitoring

of the implementation and monitoring of the impact/results;

Consolidate the monitoring system to enable the monitoring in real-time of the

evolution of the implementation of the Development Strategy of Public

Administration;

Ensure regular public disclosure of the implementation of the measures and their

impacts;

Mobilize employees and State agents, to be effective development agents;

Actively involve citizens in the monitoring process, promoting public participation;


The areas of activity in this Transversal component are aimed at strengthening the

developed activities within the governance sphere, having as the main objective to guide the

monitoring, communication and evaluation for concrete and tangible results, actively

involving civil servant and the citizens and valuing the obtained results.

Table 18 - Areas of Action of the Component Transversal Monitoring, Communication and

Evaluation

67

Areas of Action

B.1. Ensure continuous monitoring of the initiatives

Consolidate the mechanisms of monitoring and auditing of development measures

of the Public Administration, at sector-base and transversal level, which enable to

apprehend, at any time, the degree of implementation of programs and policies.

B.2. Evaluate and continuously improve the defined measures

To analyze the level of implementation of development measures of the Public

Administration, in terms of activities and impacts, and define and implement

improvement measures in useful time, which promote a culture of continuous

improvement.

B.3. Communicate results regularly

Involving civil servant, the citizens, the Private Sector and Civil Society in the

development process of Public Administration, providing on a regular basis, relevant

information on progress made and difficulties encountered and encouraging the

contributors from stakeholders.

B.4. Promote the sharing of good practice between sectors

Identify and analyze success cases in the development of PA in the national and

international levels, and encourage their replication to other services.


The Performance indicators presented below, whose goals are defined as a starting point for

the implementation of each action plan, enables the monitoring and evaluation of the

performance of Public Administration in the sphere of the component transversal

Monitoring, Communication and Evaluation.

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Table 19 – Indicators of Transversal Component Monitoring, Communication and Evaluation

Areas of


B.1 Integrated Monitoring of System of ERDAP Functioning

B.2

Biennial Evaluation of citizen satisfaction

Elaboration of biennial evaluation of satisfaction of civil servants

and State agents

Preparation of biannual report of the analysis of services provided

B.3 Number of communication instances carried out in the sphere of the

divulgation of development initiatives of PA

B.4 Number of good practices disseminated