An Examination Into The Factors That Impair The Implementation Of Policies In The Public Service Of Enugu State
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An Examination Into The Factors That Impair
The Implementation Of Policies In The Public Service Of Enugu State
ABSTRACT
The topic of this research work is “An
Examination into the factors that impair the implementation of policies in the
public service of Enugu State. “A Case Study of Enugu State Civil Service
Commission”
In pursuance for this investigation, four
research objectives were formulated. The Objectives include:
(i) The
examination of the public service and its role in policy formulation and
implementation.
(ii) To
determine the extent of implementation of formulated policies by the civil
service.
(iii) To identify the problems/factors that
impairs the implementation of government policies in the public service.
(iv) To make recommendations that will prevent
improper implementation of government policies.
The researcher utilized the library and sample
survey techniques. The sample size was statistically determined to be sixty
nine (69) respondents. The data were gathered mainly through questionnaires,
interviews and observation. The questionnaires were administrated to the
sixty-nine respondents, to analyze the data collected. The researchers used
simple percentage ratios as well as pie charts.
Based on the analysis, the following findings
were made:
i. That government sometimes constitutes
bottleneck in policy formulation and implementation.
ii. Red-tapism, haphazardness, recklessness
and political instability have not allowed the smooth formulation and
implementation of policies.
iii. The objectives of policies are not always
taken into consideration during the implementation.
Based on these findings, the researcher
recommended among other that efforts should be made to ensure strict monitoring
of policies through a well articulated feed-back system: Again it was
recommended that political stability would reverse the present trend of events
in the state civil service whereby policies are implemented hap-harzardly and
most often abandoned entirely when new administrations take over the
government.
CHAPTER ONE
INTRODUCTION
1.1
BACKGROUND OF STUDY
We live in an era of mounting individualism, a
trait characterized by growing insecurity. The undesirable consequences of
break-down of traditional values. Increasingly, we are moving away in many
respects from the old norm that we once assumed as enduring and guiding,
carrying with it what almost amounted to religious sanctity.
We seem to be losing that strong bond of
fellowship assured by human emotion in its place a mercantile-type of
association of dubious content and value is developing. The rat race for
materialism grows faster and, in the process, appreciation of life and how it
should be lived assumes less and less significance.
A greater symptom of insecurity and a sense of
helplessness can hardly be depicted. Although societies have ways of correcting
themselves, or their ills, it is not often that the cure they apply lives on,
unscathed or wholly intact. It is a duty therefore that we remind ourselves
that failure to examine the condition we live in from time to time could only
be indulged at great expense to those things we hold dear and orderly
development, it not for the time we live in, but surely for those of our
children and their children
According to Ciroma, (1980:5) No society
however small, primitive or fragmented conducts itself on an ad-hoc basic. No
matter how disorderly and deceptive in appearance its system may strike the
outsider, it conforms to some ordered pattern, fashioned out of experience and
watched for inevitable changes guided by its chosen leaders. This is where
public service becomes imperative.
Basically, public service is the colossal
impressive layering of certain contrivances-governmental, coercive and
ideological apparatuses thrown up by the political system to perform functions
relating to roles relationships.
The public service in its many diverse forms
functions as its name suggests. But essentially, it is the organism those
holding political control, at any given period use as tool in fulfilling
survival and worthwhile living. Since there is no organization that intends to
succeed that does not organization that intends to succeed that does not
operate on some procedural basis and in which the principle of chain of command
is not clearly defined, so it is with the public service where every
functionary, however lowly placed, wants to know the era of his responsibility.
The limit of his authority and his means of exercising it.
The values the community cherished are thus
not only protected but they carry in-built machinery to effect changes where
this becomes necessary. A fairly defined way of doing things and interaction
amongst people is thus established and largely adhered to by the community when
appropriately implemented as the philosophy guiding its existence. This
particular guiding is what is known as policy.
According to Enudu (1997: 12), a policy is a
guide for making administrative decision. It is an internal administrative law
governing the execution of within the organization. A policy may be stated
orally or in writing.
As human society continues to unfold,
government found themselves committed to the promotion of economic growth and
development. Today, the work of government extends too many of society’s life.
There is a noticeable increase in the activities of government all over the
world. They deal with foreign governments at the same time as they oversee
internal and external trade, look into industrial and agricultural growth of
the country as well as into the health of the population and even their
sporting activities. It is not possible for the few ministries, the chief
executive and his political advisers, the legislators and the judges and
magistrates who make up three arms of government to do all these. Even if they
have the time and energy to carry out all their functions they will not have among
themselves alone the necessary expertise to go around their specialized
activities.
Members of government do not know everything
and they do not necessarily know more than everybody in their own area of
expertise.
According to Udenta, (1994: 72), Government of
all kind(s) in all societies requires officials for putting into effect
government policy. They need teachers, doctors, auditors, accountants,
engineers, space and other scientists and so on. This is where the civil
service comes into the picture.
The civil service is necessary not only for
putting into effect government policy, but also for ensuring that the services
already in existence are carried on efficiently and smoothly. The civil service
also monitors sectoral developments with a view to improving upon existing
standards and practices, correcting observed pitfalls and ensuring a forward
movement. Thus, the civil service takes part in policy formulation. In view of
all this, the civil service operates very considerably less on the whims and
caprices of individuals’ office holders and more on clearly defined and
established operational guidelines.
Nevertheless, evidence has shown that this
organ of the government has not been able to live up to expectation. According
to Ekang (1984: 3) “public service has been accused of having records of
inefficiency, indiscipline and laziness”. This assertion was further justified
by: enactment of Decree Nos. of 1988 which emphasized the importance of
professionalization of the civil service as a measured for increasing
efficiency. Again in 1995 this decree was repealed because it failed to yield
the expected result due to poor implementation.
Again, on 22nd June 2005, the performance
improvement Bureau was established by the Enugu State Government with the
assistance from the (SLGP) of the U.K. (DFID).
The performance improvement Bureau was
primarily set up to help improve productivity and efficiency in the Enugu State
civil service. The Bureau is expected to champion, in conjunction with
ministries, department and agencies of Enugu State Government, the improvement
of governments function through implementing reforms that promote modernization
of work processes e-governance and adoption of global and national best
practices.
The performance improvement Bureau is also
mandated to help refocus the state’s civil service towards service delivery and
making effective use of the public sector as a primary platform for poverty
reduction in the state.
The specific mandate of the performance
improvement Bureau is as follows:
To facilitate the development of performance
improvement instruments for all the ministries department and agencies. This
involves the following:
Assist ministries, departments and develop
appropriate strategies.
Help define appropriate performance
measurement criteria etc
2. Set up and implement monitoring procedures
to ensure that ministries, department and agencies are assessed according to
set targets contained in their instrument.
3. Provide support to ministries, departments
and agencies that are struggling to meet the performance targets.
In line with the above mandate, the
performance improvement Bureau, headed by a permanent secretary who is the
co-coordinator and assisted by 6 (six) advises, has been leading the various
reform initiatives of the Enugu State Government. The Bureau reports to the
Head of service of Enugu State. It is on record that the Bureau has been able
to successfully work with various, (MDAS) of Government to Introduce and
Implement Initiative that elicits positive changes in the way government is
run, and to help increase the focus, mind set and attitude of the civil servants
in the state towards being more result oriented.
It has also been working with ministries,
departments and agencies to design and implement capacity building programs to
enhance the capacity of civil servants to deliver service in a timely efficient
and effective manner. Some of the specific programs that the Bureau has
championed include the following:
Introduction of code of conduct for public
servants
Routine monitoring of service delivery by all
ministries, departments and agencies
Introduction of public complaints procedure
(Redress management).
Championing the use of characters by
ministries, departments and agencies
Capacity building / training programs
“Communication for change” program
Monitoring of the performance of ministries,
departments and agencies
Assisting ministries, departments and agencies
In Enugu State Public Service to develop their
work plans and in the development of human resource data base of the state’s
civil service which has led to the elimination of ghost workers and reduction
in the states wage bill.
Although the performance improvement bureau
has performed creditably well as could be seen from the achievements marshaled
above the accusation leveled against the civil service and the civil servants
for inept performance has remained. It is therefore, based on this poor state
of affairs and the huge sum of amount which is always spent on formulation of
these policies without successful implementation that the researcher embarked
on this study to find out the factors that militate against the implementation
of these policies. The findings of this study will enable the researcher to put
things in their proper perspective. The researcher is making use of the civil
service commission, Enugu as a case study considering the role it plays in the
formulation and implementation of policies.
1.2
STATEMENT OF PROBLEM
Government policies are sometimes believed to
be impaired by certain factors. One of such factors has been identified to
include a “Sick Public Service”.
In his speech on SAP – the road not taken,
Momoh (1988:40) lamented on the state of our civil service.
“We fashioned out development plans just as
Rorea and what beautiful documents these plans have been. Even the National
Development Plan of 1970 – 74 gave us a dream which is the dream of
development; a dynamic economy run by a people with equality of opportunity and
whose system of government is democratic.
. . . . We were in English in America, in
France, in the USSR. We came home, away with the laurels of learning and
scholarship. But our “achievement” is what we have today: a sick public
service”.
It is this sickness that has reduced the
efficiency of the civil service to an unaccepted level, resulting in policies
either being implemented haphazardly or allowed to die a natural death soon
after their formulation. We have had the following agricultural policies which
never achieved their objectives due to poor implementation. These include palm
for palm program, (VSS), school to land program, MOSSAI and so on. These were
laudable policies which never achieved their expected objectives. According to
Ejiofor, (1984:80) “we wanted enough food to feed our rapidly growing
population; and thought this can be achieved by slogans and propaganda. In
various times we launched ‘Back to land’, (OFN) ‘food for the people program’
and the Green Revolution, while the policy makers were enjoying life in the
towns, grabbing all available plots for themselves, and bringing in their
relations to enjoy with them and while they were sending their children
overseas to study medicine, engineering, law etc they were asking “the youths
to go back to land”.
Naturally, the youths did not take them
serious unfortunately too, crops do not take verbal orders from men.
Agriculture continues to decline. There are other policies in the health sector
that also did not achieve the set objectives for their formulation owing to
improper enforcement and implementation. Such policies include; ban on smoking
in the public places, environmental sanitation in offices as well as
maintaining orderliness in the public. These were sound government policies
which were meant to bring sanity into the system and which never made any
headway because of the problem of poor implementation by the public service.
1.3
OBJECTIVES OF THE STUDY
This work has as its objectives firstly, the
examination of the public service and its role in policy formulation and
implementation.
It is also the aim of this work to determine
the extent of implementation of formulated policies by the civil service.
The third objective of this project is to
identify the problems / factors that impair the implementation of government
policies.
To make recommendations that will prevent improper
implementation of government policies.
1.4
SIGNIFICANCE OF THE STUDY
This study will be of immense importance to
the government, the public service, educational and research institutions.
To the government, it will enable it to adjust
and react positively to the problems identified to give leverage to the smooth
running or implementation of its policies. This will of course reduce the cost
of implementing the policies and give credibility to such government of its
policies succeed to achieve the set objectives.
To the public service, this work will help it
to understand in more detailed from problems that forestall or impair policy
implementation; the leeway to the problems.
Finally it creates room for further research
to students in the higher institutions of learning and other research
institutions for educational development in the country especially in matters
relating to policy formulation and implementation in the public service.
1.5
RESEARCH QUESTION
This study intends to provide answers to the
following questions.
What are the roles of civil service in policy
formulation and implementation?
To what extent has the public service achieved
the implementation of its policies?
What are the factors that impair the
implementation of policies in the public service?
What is the degree/or to what extent has the
identified problems/factors affected the efficiency of the public service?
1.6
SCOPE AND LIMITATION OF STUDY
This research is based on the evaluation of
factors that impair the implementation of government policies in the public
service. However, this work is limited to Enugu State for proper articulation.
It will therefore serve as a parameter for measuring the effectiveness of the
public service with particular reference to Enugu State Civil Service
Commission.
In the course of this research work, the
researcher was exposed to a lot of restrictions and accessibility to certain
classes of information that would have made this work a master piece. Most of
the important officers interviewed were so skeptical about giving out some
classified information relating to the performance of the civil service
commission to avoid being victimized by their superior officers. This situation
in no doubt affected the comprehensiveness of this project.
There are also problems of time and finance
needed for the accomplishment of this vital study and which have punctuated on
in depth study of this topic to this level.
The researcher however claim the absoluteness
of efforts and purpose and look at this work as the best that could be achieved
given the aforementioned constraints. The researcher at the same time accepts
responsibility for any inadequacy of this research project.
1.7
DEFINITION OF TERMS
Some terms used in this work are defined thus:
VSS: This means, the volunteer service scheme.
OFN: This means, operation feed the nation.
MDAS: This stands for, Ministries, Departments
and Agency.
DFID: This stands for, department for
international development.
SLGP: This stands for, state and local government program.
SAP: This means, structural adjustment
program.
USSR: This stands for,Union of Soviet
Socialist Republics.
MAMSER : This means,Mass Mobilization for Self
Reliance, social justice, and Economic Recover
EXCO: This stands for Executive Council of
Enugu State.
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