NWEZE, VITALIS ONYEKACHI

PG/M.Sc/08/50064

ASSESSING THE EFFECTS OF STATE ECONOMIC EMPOWERMENT

AND DEVELOPMENT STRATEGY (SEEDS) IN THE DEVELOPMENT

OF PUBLIC SERVICE IN ENUGU STATE: A CASE STUDY OF

MINISTRIES OF EDUCATION AND FINANCE (1999-2007).

Public Administration and Local Government

A DEPARTMENT OF PUBLIC ADMINISTRATION AND LOCAL

GOVERNMENT FACULTY OF SOCIAL SCIENCES NIVERSITY

OF NIGERIA

Webmaster

2010

UNIVERSITY OF NIGERIA

ASSESSING THE EFFECTS OF STATE ECONOMIC

EMPOWERMENT AND DEVELOPMENT STRATEGY (SEEDS) IN

THE DEVELOPMENT OF PUBLIC SERVICE IN ENUGU STATE: A

CASE STUDY OF MINISTRIES OF EDUCATION AND FINANCE

(1999-2007).

BY

NWEZE, VITALIS ONYEKACHI

PG/M.Sc/08/50064

DEPARTMENT OF PUBLIC ADMINISTRATION AND LOCAL

GOVERNMENT

FACULTY OF SOCIAL SCIENCES

UNIVERSITY OF NIGERIA,

NSUKKA.

MARCH, 2010.

TITLE PAGE

ASSESSING THE EFFECTS OF STATE ECONOMIC

EMPOWERMENT AND DEVELOPMENT STRATEGY (SEEDS) IN

THE DEVELOPMENT OF PUBLIC SERVICE IN ENUGU STATE: A

CASE STUDY OF MINISTRIES OF EDUCATION AND FINANCE

(1999-2007).

APPROVAL PAGE

This project topic has been approved for the Department of Public

Administration and Local Government, Faculty of Social Sciences,

University of Nigeria Nsukka.

BY

…………………………….. ………………………….

Dr. B.A. Amujiri Prof. Fab. O. Onah

Project Supervisor Head of Department

…………………………. …………………………

Rev. Prof. A. Akwanya Prof. E. O. Ezeani

Dean School of Post-Graduate Studies Dean Faculty of Social

(SPGS) Sciences

………………………….

External Examiner

CERTIFICATION

We the undersigned certify that Nweze Vitalis Onyekachi, a Postgraduate

Student in the Department of Public Administration and Local Government

(PALG) with the registration number PG/MSc/08/50064 has satisfactorily

completed the requirement for the research work for the ward of degree of

Master of Science in Public Administration (MSc).

The work embodied in this project is original and has not been

submitted in part or for any degree of this or other university.

………………………… ………………………

Dr. B.A. Amujiri Prof. Fab. O. Onah

Project Supervisor Head of Department

DEDICATION

This research work is dedicated

To

God, the Omnipotent and the Omnipresent

And to

My lovely late Mum Mrs C.N. Nweze

ACKNOWLEDGMENT

The successful completion of this research work is as a result of a

combination of efforts, handwork, willing and sincere moral, financial and

material support of many people. My special thanks goes to my project

supervisor Dr. B.A. Amujiri whose co-operation, constructive criticisms and

intellectual guidance helped to sharpen my technical skills and for putting

this project into an academic shape. I am also grateful to my Head of

Department Professor Fab. Onah and to other lecturers like Professor N.N.

Elekwa, Professor (Mrs.) Chika Oguonu, Professor C. Ofuebe, Professor

F.C. Okoli (Osisi Oma I of Akpu), Professor (Mrs.) R.C. Onah, Dr. O.

Ikeanyibe, Dr. Anthony Onyish, Dr. U.C. Nnadozie, Dr. C.U.Agalamanyi,

Dr. (Mrs.) A. O.Uzuegbunam, Dr. (Mrs.) S.U. Agu, Dr. (Mrs.) M.A.O. Obi,

Mr. Eddy Izueke , Mr. Sam Ugwu, Mr. Olisakwe Dan and others whose

lectures and deep spirit of thoughts became a guide for me.

I equally thank the Vice Chancellor Professor Bath Okolo and the

entire academic staff and non- academic staff of the University of Nigeria,

Nsukka for the work well done and the assistance given to me in my stay as

a post-graduate student and for continuous assistance for more academic

degrees to restore the dignity of man.

I lack appropriate words to express my deep appreciation of the

unalloyed support both moral and financial given to me by Chief Ephraim S.

Etete. His family deserves hearty recommendations for the philanthropic,

unprecedented and detribalized love for humanity. I am highly indebted to

my family especially my late father Chief U. Nweze (Ezedioranma 1 of

IHE), who just passed away few days before the completion of this research

work. I am grateful to my brothers and sisters (Mrs) Dorathy Ezedigboh,

Anuli Nweze, Anthony Nweze and his wife Jane, Nwigwe Chinelo, my little

brother Divine Nweze, and others I could not mention their names for their

contributions and pieces of advice given to me throughout this stressful

duration. I must not fail to record my appreciation to my friends Ekene

Chukwuka, Illoani Chukwunonso, Umeh Chinwendu, Ukwueze Ogechukwu

and Obioma Ezeugwu, sincerely I thank you for always being there for me

and may the Almighty continue to bless you people for me

Also, I thank immensely, the entire staff of the Enugu State Civil

Service as well as other Federal parastatals for their assistance and co-

operation given to me throughout the time of my visitations to gather vital

information for this research work.

Finally, I thank the Omnipotent and Omnipresent God, the Creator of

my life and the Divine finisher of this research work for keeping me alive

and the good health I enjoyed throughout the critical period of the research.

To Him, I give all the glory and I shall always live to proclaim what the

Lord has done in my life.

TO GOD BE THE GLORY

NWEZE VITALIS ONYEKACHI.

ABSTRACT

This research work assesses the effects of State Economic Empowerment

and Development Strategy (SEEDS) in the development of Public Service in

Enugu State using the Ministry of Education and Finance as case study. The

study covered the period of 1999-2007. The study contends that SEEDS

reform has a moral content in that it seeks to create a better and responsive

civil service by removing faults and imperfection in the Enugu State civil

service.

The data used in this study was collected from both primary and secondary

sources. The primary method or sources of data collection included the use

of a research instrument, (the questionnaire) and interview. Some research

questions were asked as guide to the respondents in order to elicit first hand

information on the subject matter. The questionnaire contained twenty eight

structured questions designed in both open and close ended style. In

addition, the questionnaire was validated and administered accordingly.

Secondary sources of data collection on the other hand, included textbooks,

journal, government documents and internet materials.

The study formulated three hypotheses to guide the data analysis using

simple percentage, tables, pie chart and chi-square statistical method for data

analysis. The data analysis revealed that; SEEDS aims at creating a

responsive and efficient civil service in Enugu State. The findings revealed

that SEEDS reform programmes on Anti-corruption, Public Procurement,

Due Process, Service Delivery Initiative, Performance Improvement Bureau,

Budget Monitoring and Price Intelligence, Human Resource Management

programmes are yielding good results towards improving the efficiency and

effectiveness of the Enugu State civil service. The results further revealed

that high incidence of bureaucratic corruption and poor service delivery are

key challenges militating against SEEDS development programmes for the

Enugu State civil service. It is based on these findings that the study

recommended that more efforts should be directed towards eradicating

corruption in the Enugu State Civil Service and generally in the Nigerian

Civil Service in order to reposition the service to be goal oriented. Also there

is need to provide modern facilities in order to strengthen service delivery

among others.

TABLE OF CONTENTS

Title page - - - - - - - - - - i

Approval Page - - - - - - - - - ii

Certification - - - - - - - - - iii

Dedication - - - - - - - - - - iv

Acknowledgment - - - - - - - - - v

Abstract - - - - - - - - - - vi

Table of Contents - - - - - - - - vii

CHAPTER ONE: INTRODUCTION

1.1 Background to the Study - - - - - - - 1

1.2 Statement of the Problem - - - - - - - 5

1.3 Objectives of the Study - - - - - - - 10

1.4 Significance of the Study - - - - - - - 10

1.5 Scope and Limitations of the Study- - - - - 12

CHAPTER TWO: LITERATURE REVIEW AND METHODOLOGY

2.1 Literature Review - - - - - - - - 15

2.1.1 Origin and Development of the Nigerian Civil Service - - 15

2.1.2 Strategies for Implementing Civil Service Reforms in Nigeria - 39

2.1.3 NEEDS: its Meaning, Origin and What is Stands - - - 41

2.1.4 Current Public Service Reform in Nigeria: The Reform

Objective- - - - - - - - - - 48

2.1.5 The Enugu State Economic Empowerment and Development Strategy

(SEEDS): A Critical Review - - - - - - - 62

2.1.6 Institutional Arrangements of Civil Service Reforms in Nigeria 84

2.1.7 The Current Public Service Reform in Nigeria: The Scorecard - 86

2.1.8 Current State of Public Service Delivery in Nigeria - - 90

2.1.9 Causes of Inefficiency and Low Productivity in Nigeria Public

Service - - - - - - - - - 91

2.1.10 Gap in the Existing Literature - - - - - - 98

2.2 Hypotheses - - - - - - - - - 99

2.3 Operationalization of Key Concepts - - - - - 99

2.4 Methodology - - - - - - - - - 100

2.5 Theoretical Framework - - - - - - - 107

CHAPTER THREE: BACKGROUND INFORMATION ON ENUGU

STATE

3.1 The Geographical Location of Enugu State - - - - 114

3.2 People Culture and Religious Beliefs of Enugu State - - - 114

3.3 Population Distribution of Enugu State - - - - - 116

3.4 Political Life of Enugu State People - - - - - 119

3.5 Economic/ Commercial Activities of Enugu State People - - 122

3.6 Educational Institutions in Enugu State - - - - - 124

3.7 Organizational Structure of Ministry of Education Enugu State - 125

3.8 Service Charter of the Ministry of Education Enugu - - - 130

2.9 Staff Strength and Placement in the Ministry of Education,

Enugu - - - - - - - - - - 131

3.10 Educational Enrolment in Enugu State - - - - - 132

3.11 Organizational Structure of Ministry of Finance, Enugu State - 135

3.12 Staff Strength and Placement in the Ministry of Fiance, Enugu - 137

CHAPTER FOUR: DATA PRESENTATION, ANALYSIS AND

FINDINGS

4.1 Data Presentation - - - - - - - - 139

4.2 Finding - - - - - - - - - 183

4.3 Discussion of Findings - - - - - - - 184

CHAPTER FIVE: SUMMARY, CONCLUSION AND

RECOMMENDATIONS

5.1 Summary - - - - - - - - - 188

5.2 Conclusion - - - - - - - - - 190

5.3 Recommendations - - - - - - - - 191

Bibliography

Appendix

CHAPTER ONE

INTRODUCTION

1.1 Background to the Study

Public service all over the world is considered a veritable agent of

national development as a result of its inevitable role in the implementation

and execution of the state (government) policies. It is in this line of thinking

that Okeke (2001:166) promptly puts at thus:

“No matter the policies, no matter the resources

available, there has to be the requisite or reliable or

proper administrative apparatus for these policies, for

these resources to translate into concrete achievements,

concrete services and concrete good for the people and

the government of the political unit of interest”.

In the above assertion, what is implied is that public service forms a

benchmark for the accomplishment of national development goals.

However, in Nigeria this does not seems to be the condition or what is

obtainable from the public service, which has performed below the

expectations of uplifting the national development. Nwatu, (2005:354) in an

assessment of the Nigerian public service stated that:

“Public services in Nigeria over the decades have

witnessed a sick –baby status which has lethargically

hinder public services from performing towards

national development goals”.

As Soludo(2004:86) similarly noted, the result of development in the

past decade has been a weakened public service; persistent deficits

financed by domestic and external borrowing, creating a high debt service

burden; the breakdown of the traditional instruments of control, leading to

corruption and misappropriation of funds; the high incidence of ghost

workers; poor costing of programmes and projects; a large portfolio of

abandoned and ongoing projects; and the mushrooming of institutions,

especially inefficient and wasteful public sector. In other words, he argued

tendentiously, that the failure of public services sector in general and the

economic crisis of the past decades, coupled with the present Nigerian

stunted economic development that led to the quest for solutions to national

public service problems. As Ezeani (2005:124) stated, “the Nigerian civil

service was a British creation and therefore a replica of the British civil

service”. According to him it was established to provide a conducive socio-

economic and political environment for the advancement of the British

imperialist interest. Therefore, the colonial civil service was more interested

in resource exploitation than substantial and qualitative improvement in the

welfare of the people.

Despite some modifications here and there, since Nigeria‟s

independence in 1960, it still remains an uphill task trying to divorce the

Nigerian bureaucracy from its colonial mentors vision. The Nigerian civil

service continues to serve as an instrument of underdevelopment.

Consequently, it has failed to act as an effective instrument for the socio-

economic transformation of the country due to incompetence, pervasive and

institutionalized corruption, legthargy, etceteera.

Consequently, many reforms have been carried out by successive

governments in Nigeria with the aim of meeting the needs of the generality

of Nigerian population. Indeed, Nigerian civil service has had over eight

reforms ranging from Gorsuch Reforms (1954), Mbanefo Reforms (1959),

Morgan Reform (1964), Elwood Reforms (1966), Adebo Reforms (1971),

Udoji Reforms (1974), the 1988 Reforms and Ayida (1997/98) Reforms

Okotoni (2004:107) and Okoli and Onah (2000:173). On the other hand,

Okotoni (2004:107) and Ezeani (2005:135) observed that from Nigeria‟s

independence in 1960 to 1994, seven Commissions or Panels have been set

up to look into the problems of the public service and make

recommendations on ways to improve its performance. However, these

reforms were unsuccessful necessitating other reforms of the service.

Since 1999, the Federal Government, under the leadership of Chief

Olusegun Obasanjo, is under no illusion about the urgent need to effect the

necessary reforms that will address the problems of the civil service and

make it efficient and effective Nnalue (2002:45). In a similar note, Musa

(2001:2) puts thus:

The government has embarked on measures to

reorient the Nigerian public service to new

Administration’s expectation of it and to

reestablish old civil service values of loyalty,

integrity, dedication and competence through the

introduction of NEEDS,SEEDS,LEEDS and

CEEDS at the Federal, state and local government

levels.

In other words, the National Economic Empowerment and

Development Strategy- (NEEDS) launched on the 29th of May 2004 was yet

another bold steps aimed towards reforming and building a strong and

responsive public service in Nigeria by the Federal Government under the

then President Olusegun Obasanjo‟s administration. Nevertheless, it is

important to mention that NEEDS is Nigeria‟s plan for prosperity and is

committed to changing the public service for the better, this imperativeness

made the Yar‟ Adua/Jonathan‟s administration to continue the

implementation of NEEDS reform programmes. The targets of the NEEDS

and SEEDS on public service or public sector ranges from public sector

reforms , service delivery, training and skills acquisition, fighting corruption

and ghost workers attitudes to re-orientation of behavioural patterns of

public servants NEEDS (2004:56) and Enugu State SEEDS (2004:5).

From the viewpoint of Ede (2005:63) and Dauda (2006:22), NEEDS

is a homegrown policy strategies that aim at reviving the efficient and

effective performance of Nigerian civil service through tackling corruption,

strengthening accountability in public service, providing quality staff

training and improving infrastructural development to increase service

delivery.

The implementation framework also designed other components

below the national levels. There are the State Economic Empowerment and

Development Strategy (SEEDS) and Local Economic Empowerment and

Development Strategy (LEEDS) to ensure its effective implementation

within the state and local government public service. But not much has been

achieved to distinguish the National Economic Empowerment and

Development Strategy (NEEDS), and the State Economic Empowerment

and Development Strategy (SEEDS) from other public service reforms in

Nigeria.

It is against this background that this study intends to investigate and

assess the effect of the State Economic Empowerment and Development

Strategy (SEEDS) on the development of public service in Enugu State

using the Ministry of Education and Finance as case study.

1.2 Statement of the Problem

The civil service of any nation remains its greatest asset in its quest

for socio-economic and political transformation. Therefore, the efficiency of

a state is predicated on the character of and methods of its civil service. This

view was stressed by the Chairman of the Federal Civil Service Review

Panel in 1975, when he opined that “there is a strong sense in which a

country is a close reflection of the effectiveness and sensitivity of its civil

service”.

However, with the present performance of the Nigerian public service,

it is difficult to accept that its operations and service delivery are efficient.

Today there are a lot of claims and criticisms that the Nigerian public service

has remained stagnant to growth on the current on- going government

reforms on the public service sector. From assessment of the Nigeria public

service performance by scholars like Oladipo (2009:370), Akpederi

(2005:48) and Ademolekun (2002:86) showed that effectiveness and

efficiency have not been achieved to justify the raison d‟tere for numerous

reforms that has been carried out. On this, Ede (2005:64) noted that “it is

now evidently clear that the Nigerian public service has performed dismally

as an instrument for achieving national development in spite of all the

initiated reforms and financial investment.” However, we cannot understand

why that is the case outside the context of the general inefficiency in the

civil service which has been characterized by high incidence of corruption,

lack of accountability, poor staff training and development, poor

infrastructure to work with and general poor service delivery of the public

services. In view of these problems, various reforms have been initiated to

bring positive change in the Nigeria public service but the experience so far

shows that the problems have persisted unabated.

Analytically, the State Economic Empowerment and Development

Strategy (SEEDS) programmes on the public sector services need to be re-

assessed since the problems it came to salvage have also persisted unabated.

Consequently, the central question becomes ever more pressing today in the

current context of declining management efficiency in public service

particularly in Enugu state.

The reality of the situation is that there is incidence of corruption and

lack of accountability in the public service today in Nigeria, such has

adverse effects on the implementation of SEEDS and its efforts on the

development of Nigerian public service particularly in Enugu State

especially as it concerns quality service delivery (Enugu State SEEDS

2004:79). Systematically, corruption as observed by Anazodo (2009:295)

has threatened the implementations of reform programmes under the current

NEEDS and SEEDS reforms as it weakens quality service delivery in the

public service. It has been emphasized by the Enugu State SEEDS (2004:79)

that:

Corruption remains a risk for all public

programmes in Nigeria. With the high levels of

corruption in Nigeria, and especially in the public

sector, there is a risk that public funds and

services may be diverted and fail to reach the

intended beneficiaries

According to Soludo (2004:86) the core priorities of NEEDS and SEEDS

are: Enforcing anti-corruption laws, to ensure transparency and

accountability in public service, stimulate efficient service delivery, fight

against ghost workers as well as implementing and ensuring the sustenance

of good manpower training and development, administration of benefits and

incentives towards goal-oriented public service. Despite the above, there is

still persistence of corruption in the Nigerian public bureaucracies which has

affected the quality service delivery rendered by the civil servants. The truth

of the matter is that efficient and responsive public service as well as prudent

accountability, which are major target areas of SEEDS objectives on the

development of public service, may not be likely achieved in the current face

of corrupt image of the Nigerian public service both at local and

international assessments. Although as Adebayo (2004:32) has rightly

observed, this has been the consequential effect of poor motivation of the

civil servants by the government.

On the other hand, there is still a mix-feeling signal or view that the

“right-sizing exercise” in the public service may lead to further socio-

economic problems considering the effect on the employees (public

servants). There is the fear that with all the laudable intentions of the

SEEDS, to set the public service on the path of good management, the

practical effect of the retrenchment may create an atmosphere of

apprehension and uncertainty in the public service. This, in turn, may lead to

a general feeling of depression. And no one suffering from a feeling of fear

and depression can be expected to be efficient at his work.

Moreover, brief review of the records of decade public service in past

years, by scholars such as Onah (2000:12), Nwatu (2006:106) and Ezeani

(2005:136) suggest that staff training and development programme in the

public service is inadequate to make the service efficient. From the

foregoing, inadequate staff training and development stand to mar the effort

of the State Economic Empowerment and Development Strategy – (SEEDS)

in restoring the professionalism of the public service and provision of quality

service delivery in the public services. It is apparently clear that untrained

public servants are liabilities to the government and may cause other

problems in the process of performing their jobs. On the other hand, Akpan

(1979:13) puts thus:

“An untrained man in the modern world may… be

a menance to the society. He is a quack; he knows

only the laws of thing; he has no idea of their why.

Hence if there is any trouble anywhere-breakdown

in a machine or a mistake in a ledger- all he can

do is to fumble and punch up trouble anyhow,

leading to a more serious breakdown or greater

confusion. Really there is no place for the

untrained worker, or even the intelligent amateur,

in these days of specialized work”.

This undoubtedly may affect the target of SEEDS to reduce waste and

improve efficiency of government expenditures in public service through

enhancing the proficiency of the public servants/civil servants.

Indeed, it is necessary to recognize the fact that SEEDS is a

programmes that demands or requires political supports if its implementation

both at national and local levels must be achieve. But there is uncertainty

considering what Onah (2006:8) has stated that:

“the problem in Nigeria is not about

conceptualizing policies, plans and programmes;

neither is it about putting down development plans

rather it is implementation”.

The above statement suggests that the level of political will or support

attached to the implementation of SEEDS may threaten the achievements

where the support does not match the expectations. It is therefore against this

backdrop that the researcher intend to investigate the effects of State

Economic Empowerment and Development Strategy (SEEDS) on the

development of public service in Enugu State using the Ministry of

Education and Finance as case study from (1999-2007). It is in view of the

fore-goings that this study tends to raise the following questions:

(i) What effects have the State Economic Empowerment and

Development Strategy- (SEEDS) made on the development of

public service in Enugu state Ministry of Education and Finance?

(ii) Have the effects of SEEDS reflected on the operational

effectiveness and efficiency in the Public Service of Enugu State

especially in the Ministry of Education and Finance?

(iii) If not, what are the constraints militating against the effort of

SEEDS on the development of public service particularly in the

Ministry of Education and Finance?

(iv) What are the measures to be adopted in making Enugu state public

service more efficient and responsive?

1.3 Objectives of the Study

For purposes of clarity, the objectives of this study are grouped into

two categories namely: Broad and Specific.

Broad Objective of the Study is:

(i) To assess the effects of the State Economic Empowerment

Development Strategy (SEEDS) in the development of public

service in Enugu state.

Specific Objectives of the Study are:

(i) To ascertain whether the effects of SEEDS have reflected on the

operational effectiveness and efficiency or performance of the

public service in Enugu state especially in the Ministry of

Education and Finance.

(ii) To identify the constraints militating against the effort of the State

Economic Empowerment and Development Strategy – (SEEDS) in

the development of public service in Nigeria particularly in Enugu

state especially in the Ministry of Education and Finance.

(iii) To proffer solutions towards making Enugu state public service

more efficient and responsive.

1.4 Significance of the Study

The significance of the study presents the value or contribution which

the research will make to the existing knowledge. Obasi (1999:73), asserts

that research is most important tool for advancing knowledge and enables

man to relate more effectively to his environment.

The significance of this study are categorized into theoretical,

empirical and practical significance.

Theoretical Significance:-

Theoretically, this study has the potential of contributing greatly to the

growth of existing theories in social sciences particularly in public

administration by helping to enrich the bank of knowledge through its

reliable findings on the effects of SEEDS on the Enugu state public service

can be established. This is to say that our study would assist in improving

the frontiers of knowledge especially in the management of the Nigerian

public service. The study will be of immense significance in ascertaining the

progress so far made by SEEDS in building an efficient and responsive

public sector service in Enugu state in particular. On the other hand, the

study will assist in unveiling the challenges or factors militating against

effective implementation of SEEDS programmes on public sector service

and will make useful suggestions towards ensuring the achievement of goals

of SEEDS in the public service. This is important because it is only a viable

or goal oriented public service that can provide quality service delivery for

national development.

This study also has the potentials of contributing immensely to the

existing body of literature on this subject matter. Literature on the State

Economic Empowerment and Development Strategy are still scanty because

it is a new programme and not much has been written on the subject matter.

Empirical Significance:-

Empirically, this study will serve as a foundation or base for future

researchers who may in due course of time wish to embark on the

investigation on assessing the effects of State Economic Empowerment and

Development Strategy in the Enugu state public service.

In other words, this research will serve the academia as a useful and

veritable bibliographical references which will stimulate research for other

related studies in relation to SEEDS and its development programmes in

Enugu public service.

Practical Significance:-

Practically, this study is considered significant because it will

contribute in providing the decision makers and other key actors in the

Nigerian public service with the road- maps that will necessitate prompt,

responsive and efficient public service in Nigeria. It will also suggest the

panacea through which the campaign against corruption, lack of

accountability and transparency, poor service delivery and general

inefficiency in the Nigerian public service can be effectively tackled.

Last, but not the least, this study has the potential to strategically

improve the efficiency and effectiveness of the Nigerian public service

through its advocacy on reforming the public bureaucracies in Nigeria

especially the behavioural aspect of the bureaucrats. In this regard, this work

is a practical pain staking “post mortem” surgical examination of the

problems of Nigerian public service as well as the way forward.

1.5 Scope and Limitations

This study focuses on the evaluation of the impact of the State

Economic Empowerment and Development Strategy on the development of

public service in Enugu state: a case study of Ministry of Education and

Finance (1999-2007). This study covers in detail, the programmes of SEEDS

towards creating a more efficient and responsive public sector in Enugu

state.

Nevertheless, a study of this magnitude cannot be completed

successfully without the researcher encountering some constraints or

limitations. Therefore, this work will not pretend to be containing all holistic

information on the programmes of SEEDS in the public service in Enugu

State, rather it will endeavour to highlight the dominant issues and their

effects in the public service in Enugu State. Another obvious limitation is the

effort to trim the paper to a sizeable and acceptable volume for a Master of

Science Degree. This obviously has not been easy considering the subject

matter of this research which boaders on sensitive issues in the on-going

reform programmes in the Nigerian public service, though this has in no way

affected the quality of this research work.

It is also pertinent to mention that inadequacy of data or near absence

of a reliable and up to date central data bank on the theme of this study,

which has been compounded by the inability of public bureaucracies to grant

full access to the researcher nearly mar the effort of the researcher. In other

words, paucity of literature on the State Economic Empowerment and

Development Strategy (SEEDS) and its contributions so far in the Enugu

state public service almost mar the effort of the researcher. Also most of the

relevant information collected so far, for this study is not narrowed down to

the case study (Enugu state public service and the Ministries selected as case

study). On the other hand, some information are said to be classified

information and out of bound to non staff. Considering this, the researcher

seek other means to supplement and consolidate the information through the

use of internet materials, text books, journals, newspapers, magazines and

past research projects by students and research institutes. Further

information were collected from the (civil servants in the Ministry of

Education and Finance) in Enugu state using questionnaire and interview.

Also considered as a limitation in this study hinges on our inability to

elicit information from the top government officials especially the

Commissioners who failed to grant access to the researcher to interview

them face- to- face. Others who availed themselves for interview still

exhibited signs of fear to provide answers to some questions asked while

some questions were said to be top civil service secret. This as we all know

is common in Nigeria public sector organizations, because a country where

freedom of expression is problematic, it will be difficult getting the unbiased

views of some civil servants on apparently sensitive issues on corruption,

state of public accountability, governance and service delivery in the Enugu

state civil service. As it is also a well known fact that critics of government

policies in the country had always suffered one form of victimization or the

other, such as loss of employment, suspension from their jobs and at times

harassment by the top government officials. In other words, it is of concern

to mention that it was difficult to maintain the researcher‟s neutrality in

trying to be non-judgmental as this is an essential factor to avoid, since the

subjectivity of respondents invariably breeds a consequential loss of

objectivity. In other words, some respondents seek to force the researcher to

express his own opinions, particularly as he sought to know theirs because it

enables them identify the researcher‟s mind in order to adapt responses.

Impartial neutrality to some extent rendered the researcher colourless as if

one is a spy on managerial activities.

However, the researcher ensured that the limitations/constraints did

not affect the outcome of the study by supplementing the available

information through internet material, text books, journals and

administration of questionnaire and oral interview.

CHAPTER TWO

LITERATURE REVIEW AND METHODOLOGY

2.1 Literature Review

The study shall review some relevant literature that relate to the

subject matter of this research work. For a clearer overview of the various

literatures on the study, this section is divided into the major sub-headings as

follow:-

Origin and development of the Nigerian civil service;

Civil service reforms in Nigeria;

Strategies for implementing civil service reforms in Nigeria;

NEEDS:Its meaning, origin and what it stands for;

Current public service reforms in Nigeria: The reform objectives;

The Enugu State (SEEDS): A critical review;

Institutional arrangement of civil service reforms in Nigeria;

The current public service reform in Nigeria: The scorecard;

Current state of public service delivery in Nigeria; and

Causes of inefficiency and low productivity in Nigeria public service

2.1.1 Origin and Development of the Nigerian Civil Service

In an attempt to trace the origin of civil service in Nigeria, it is

pertinent to look at history of civil service and trace how it started in the

developed nations of the world before Nigeria.

According to Adebayo (2001:72), the civil service is not a creation of the

modern times. It has its roots in history and dates back to the times of the

pericles, a renowned leader in ancient Greece, introduced a scheme for the

compensation of officials, thus facilitating the continued participation in

public administrating by citizens who had to work daily for their living. This

marked the beginning of civil service. The ancient Chinese Empire, during

the Han Dynasty, 202 B.C. recognized the need to have a permanent body of

Officials to implement government decisions. About the year 120 B.C, the

Chinese Prime Minister, Kung – Sun Hung, in a memorandum addressed to

the throne, observed that the edicts and laws were often not understood by

the officers whose duty it was to explain and interpret them to the people

Amalu (2009:301). He therefore recommended that examinations be held for

the selection of men, and that those who had shown the best knowledge

should have the first preference in appointments to office requiring the use

of written language. His recommendation was adopted and marked the

beginning of the civil service examination system. In AD 219 the ancient

Chinese had worked out a system of classifying men into nine grades

according to their ability, knowledge, experience and character. This system

of nine – grades classification was officially adopted for the selection of men

for government service. The official appointed to administer the system was

called Chung Cheng that is impartial judge, a forerunner of our present day

civil service commission Adebayo (2001:76) and Amalu (2009:73). With the

emergence of modern states and the development of the parliamentary

system of government, the civil service evolved as the bedrock of the

executive arm of government. Its main task came to be the implementation

and execution of polices decided on by the legislature or those appointed by

legislature to carry on the executive work of government Okoli and Onah

(2002:171). In accomplishing this task, the civil service has found itself

involved in the formulation of policy and advising generally on policy

matters. Obasi (1988:23) observed that the Nigerian civil service is a

colonial creation and a veritable replica of the British public bureaucracy in

some of its structural features. According to Obasi, (1988:25) because

Nigeria could not fashion out her own system like the ancient Greece and

China, she adopted that of Britain. Hence, as a colonial creation, the

Nigerian civil service was established to provide conductive socio-economic

and political environment necessary for the advancement of British

imperialist interest. As Adebayo (2001:212) observed, the objective of the

British colonialist, when they arrived in Nigeria in the early part of this

century was specifically aimed at establishing an effective administrative

machinery with a small number of personnel that have been oriented to

defend and implement the policies of the British government. Adebayo

posits that such objectives can be broadly summarized as:

a. Maintenance of law and order

b. Ensuring that the “nations” paid their taxes as and when due, and express

their full allegiance to the British monarchy.

c. Ensuring that raw materials required by the British industries were

supplied on time and finished products brought back to the colonies for

consumption.

Like the German public bureaucracy, the Nigerian civil service was

established to a career structured organization, as fashioned out by Marx

Weber, possessing the qualities of permanence, impartiality, neutrality,

anonymity, loyalty, technical competence and hierarchical authority

(Nwankwo, 1988:72). Nwankwo went further to say that the Nigerian civil

service refers to that part of the executive branch of the Federal government

(with the exception of the armed forces and police), the functions of which

are classified into groups of related matters and assigned to ministries and

extra-ministerial department”. Even though the hierarchical and class-

oriented nature of the Nigerian civil service is a product of the country‟s

colonial experience, it has persisted, and the internal structure of the various

ministries and departments has, to a large extent, remained similar despite

the changes in regimes since Nigerian‟s post- colonial

political/administrative experiments.

Nigeria Civil Service from Colonial to Post Colonial

The colonial civil service was a machinery by the British to

consolidate their administration of the colonies Okoli and Onah (2002:73). It

first started as a tool of conquests and grew into a Task Force to pacify

native areas and make treaties with chiefs and natural rules. Its job was to

coerce hostile and competing tribes to live together in peace. The early

administrators then were to check where peace was disturbed as to

adjudicate in land and tribal disputes that affected the return of peace. The

background of the service was purely military and its early administrators

were men with military training. By 1900, the colonial office took over

responsibility from the Royal Niger Company Gana (1987:50). Henceforth,

the office became responsible for administration of all British West Africa.

The period 1990 to 1940 was one of administrative consolidations in British

West Africa (Okoli and Onah 2002:72).

The responsibility of filling all positions in the administrative grades

rated with the colonial office became necessary with the event of time. Local

personnel were recruited to fill the junior posts in the clerical, semi-skilled

and unskilled grades (Nicolson, 1969:112).

This was so because the British never believed that independence for

West Africa could come in the foreseeable future (Okoli and Onah,

2002:74).

Structure of the Colonial Civil Service

The core of the colonial service was the administrative officer at the

district level. He was answerable to the resident officer who was in -charge

of all governmental and local administration in the province. Above the

resident officer were the regional Governors and the chain of command

stretched upwards to the Governor and the commander- in- chief at the apex

(Adu, 1969:20). Adu noted that Governor was answerable to the colonial

office in London. The legacy of this structural system is still with us today.

One of its effects was that when the country achieved self- government, a

vacuum was created by the departure of these expatriate officers. Their

knowledge and experience were not replaced because Africans normally had

no expectation of being appointed to these posts Okoli and Onah (2002:73).

The exclusion of Africans from senior responsible positions led to

feelings of frustration with the result that they (the African civil servants)

were inclined to be intransigent on the least provocation and rigid on their

concept of work. This we see in the civil service today (Adu, 1969:21).

According to Akpan (1982:40), the colonial service was geared

towards the negative policy of preventing trouble in the areas under its

administration. Economic and social development was never a major

objective of the administration. Economic activities were mainly in the

hands of private British Trading Companies (Okoli and Onah, 2002:76).

Okoli and Onah noted that their main interest was the sale of manufactured

goods and the purchase of local agricultural produce. The administration‟s

policy towards these firms (U.A.C., John Holt, etc) was to promote their

economic interests (Babangida 1990:122). He also observed that education

was left in the hands of the missionaries who, in addition to training their

church workers and teachers, produced clerks, and other junior employees

for government and the trading houses.

On the area of financial administration Blitz (1965:102) observed that

it was one of simple accounting of revenue and expenditure and the

balancing of the budget. Revenue collection was mainly customs and excise

duties. Development expenditures except in isolated cases, were virtually

unknown (Blitz, 1965:102-103).

In summary, the main function of the colonial administration was the

maintenance of law and order and the minimal function of collecting

revenue and taxes mainly from customs and export duty.

The Nigerian Civil Service and Political Development

Civil service is the general term designating the civil administrative

personnel of the public authorities Okoli and Onah (2002:76). The English

used the term, public service, in a broader concept to include the personnel

of the central government agencies Adebayo (2004:11) and Okoli and Onah

(2002:76). Civil service administration is thus described as the measures

taken by governments to organize their public employment in relation to the

country‟s manpower requirements; the dictates of the economic, financial

and social policy of the state, and the need to provide the authorities with

competent and qualified staff now and in future.

In our use of the term “Public Service” we exclude the Armed Forces,

the quasi- government corporations and statutory Bodies, we will

concentrate on the Higher Civil Service which we defines as the policy-

making, policy-executing and policy-advisory echelon of the service. Entry

into this grade requires a good honours degree or professional qualifications.

The Nigerian Public Service has a tradition of attracting the country‟s

finest, brainiest power, and the public service today is recognized as a very

important toll of modern government Okoli and Onah (2002:76). As

government expands it services and widens its scope of jurisdiction, the

machinery expands (Gana, 1987:52).

The Royal Commission on the Civil Service, 1929-31, Report

(formerly known as the Tomlin Report) cited in Okoli and Onah (2002:77)

defines civil servants as “those servants of the crown other than holders of

political or judicial offices who are employed in a civil capacity and whose

remuneration is paid wholly and directly out of monies voted by

parliament”.

The concept of administration is thus the formalized framework of a

competent organization, which is to carry out the decisions of the policy

makers. The Nigerian Civil Service adheres strictly to the ethics of the

British Civil Service Duke (1985:93) and Nicolson (1969:72). As a matter of

fact, the public services in common wealth Africa are an inheritance from

the colonial period and closely resemble each other as a result of their

common historical origin. They are modeled on the British pattern, and the

civil servants claimed to be following the footsteps of an acknowledged

premier service. The loyalty and caliber of the Nigerian civil service are

generally high and the service holds high in status as a national institution

(Fulton, 1968:201).

Basic Classifications in the Nigerian Civil Service

Civil service in Nigeria can be divided into permanent and

Temporary, Established and Unestablished, Senior and Junior service Okoli

and Onah (2002:77) and Okoli (1980:17). They are the one in regular

contact with politicians and others, who play a part in policy- making Okoli

(1980:17). According to Okoli, further classifications will find the following

categories:-

a. Administrative and Professional Grades;

b. Executive and Higher Technical Grades;

c. Clerical Grades and Technical Grades.

In the past a clear distinction between departments and administrative

branches were made in the service Adamolekun (1986:74). According to

Adamolekun (1986:74) and Okoli and Onah (2002:76), the departments

were charged with technical functions like Agriculture, Communication,

Education, Health, Works, etc. According to Okoli and Onah (2002:78), the

administrative branch was subdivided into:

a. The Secretariat; and

b .The Political Sections

The Secretariat was the headquarters with basic responsibility for planning

and policy formulation. The Political subdivisions were responsible for

supervision of Native Administration and general direction of policy in the

field. The political officers were responsible to the government, and

empowered to oversee both technological and political matters.

Civil Service Reforms in Nigeria

In spite of the universal character of civil service all over the world,

almost all governments try to create their own kind of civil service that

would respond adequately to their policy needs and objections. This explains

why civil service all over the world undergoes several reforms or

reorganizations as governments come and go. Hence the character and

orientation of these civil services differ to some extent according to the

character and ideology for the regime in power. Akaboyu (1988:55)

observed that over the last 30 years, the bureaucracy has degenerated into a

corrupt, unresponsive and self-serving secret society, loyal only to its own

parts and perquisites. Reforms are therefore undertaken by government after

realizing the fact that an existing system or institutions is incapable of

meeting the demands of current socio-political and economic development.

With increased awareness of political developments leading to

demands for self-rule, Nigerian workers through various labour movements

started to agitate for better working conditions particularly pertaining to

remuneration. In response, Nigerian government instituted various

committees and commissions to address those agitations. These were the

beginning of reforms in the civil service. Adebayo (2001:212-216) gave the

history of the reforms as follows: The first reform of the civil service was

undertaken in 1946 by the Harragin Commission, which divided the service

into junior and senior services. The second was the Gorsuch Commission of

1954, which restructured the service into four sections namely: the sub-

clerical, clerical administrative, professional and super-scale staff. The third

was the Mbanefo Commission of 1959, which was concerned mainly with

the issue of salaries and wages review in the civil service. The fourth was the

Newns Commission of the 1959, which integrated the existing departments

under directors into ministries to be headed by permanent secretaries. This

marked the significant development in the restructuring of the civil service.

The seventh was the Adebo Commission of 1970. All these commission

looked mainly into the issue of salaries wages and allowances in order to

address workers agitation. The eight was the Udoji Commission of 1972.

This reform made the significant milestone in the reforms of the civil service

especially in areas of professionalism and salary increment. It introduced a

unified salary grading system, new management techniques, and open

Reporting system. The ninth was Williams Panel of 1975 which looked into

the spate of complaints which arose out of the grading and salary structure

put in place by the Udoji Commission. This according to Amoke (2008:101)

brought about the national purge of public servants by the Murtala/Obasanjo

regime where thousands of civil servants lost their jobs. The tenth was

Dotun Philips Panel of 1985. This came about because in spite of the

laudable management techniques introduced by the Udoji Commission,

designed to promote efficiency and make the civil service result- oriented,

the service deteriorated rapidly to the virge of collapse. It was essentially the

recommendations of the Philip‟s Panel that were considered and largely

adopted by the Koshoni Panel. The eleventh was the famous 1988 civil

service reforms embodied in Decree 43 of 1988, which sounded the death-

Knell of the civil service and virtually destroyed what was left of the service.

According to Okoli and Onah (2002:178), the reform abolished the post of

Head of civil service; made Ministers/Commissioners accounting officers of

their respective Ministries; replaced Permanent Secretary with Director-

General and politicized it; professinoalization; and downsized operational

department of each ministry. The twelfth was the Ayida Panel of 1997 which

came as a result of the adverse effects of the 1988 reforms which had

disastrous consequences on the civil service. As Mikailu (1998:65)

observed, the problems arising from this aspect of the Reform became very

evident within two to three years of implementation, leading to a rethink and

to the desire of government to revert to the old order. The other reforms

which were aimed at salary, wages and allowances increase are those of

1999 under Abduislami Abubakar: payment of minimum wage of year 2000

under President Obasanjo and the implementation of the 15% increase in

Federal civil service salaries under President Yar‟ adua in 2007 (Amoke,

2008:102). These are the litany of civil service reforms aimed at

strengthening the service and making it more efficient and effective. But in

spite of all these, the service has remained ineffective, inefficient, and

corruption in the civil service is rising daily. Ezeani (2005:138) and Oladipo

(2009:39) noted that corruption is the most challenge facing the Nigerian

civil service today. According to Onah (2000:286) the situation is so because

the politicians are corrupt and civil servants have been operating under

abnormal situations”. He posits that the reforms are based on a theoretical

framework. Thus throughout the nearly four decades of its post-

independence life, the Nigeria civil service has had to contend with major

institutional and structural problems, which, in no small measure, combined

not only to drastically weaken its capacity to perform but also its credibility

in the face of both government and the general public.

The Strength and Weaknesses of Past Civil Service Reforms in Nigeria

Several administrative/ civil service reforms have been carried out in

Nigeria in response to specific needs. Usually, a study group called

Commissions are mandated by government to study a particular problem

which then forms the basis for reform proposals. For obvious reasons, only a

few of these reforms will be considered. These include the following:

The Gorsuch Commission

The Gorsuch Commission was appointed in September, 1954, to

inquire into the structure and remuneration of the public service with special

reference to problems arising from constitutional changes proposed at the

conference on the Nigerian Constitution Okotoni (2004:107). The

Commission reported in 1955 with the following major observations on the

structure of the public service:

-The new constitution which came into operation on 1st October, 1954,

gave birth to 4 separate service (i.e each Region with its own civil

service).

- That Nigerian public service structure is defective in that it lacked a

middle grade- which it described accordingly as an “hour glass, broad

at the bottom, narrow in the middle and board again at the top”.

- Consequently, as a result of absence of executive grade (middle grade)

administrative and professional officers were called to do routine executive

work. The expatriate in this class were expensive to maintain. The

commission felt that it was uneconomic for the class to be performing the

duties which less experienced grade could perform.

In reaction to these defects, the commission recommended that the

“Senior” and “Junior” structure be abolished, and in its place recommended

pyramidal structure with a broad base of junior staff and narrow peak of the

super- scale staff. The Commission believed that the creation of this

proposed middle grades (Executives and Higher Technical) will broaden the

front of NIgerianisation. Another major recommendation by the commission

was “structure and remuneration alike should now be measured by the

yardstick of Nigerian conditions and requirements, and be designated to

attract the best men and women Nigeria produces. “(Nigeria, 1955:222).

Most of these recommendations were accepted. The reform tried to ensure

that the Nigerian public service was patterned more closely after the

Whitehall model, even though allowance was made for federalized public

services. However, this reform did not reflect the desires of the nationalists

who took the mantle of national leadership after independence. Civil service

then was still wearing the colonial legacy which the nationalists wished to

remove in order to reposition the Nigerian civil service towards the task of

nation building. Apart from this, the conditions of working under the civil

service were not encouraging and therefore the need to reform the civil

service became imperative Okotoni (2004:108).

The Morgan Commission, 1963

This was the first commission after Nigeria attained independence in

1960 Adamolekun (2002:131). On 14th October, 1963, Morgan Commission

was appointed by the Federal Government in consultation with the Regional

government to investigate the existing wage structure, remuneration and

conditions of service in wage-earning employments in the country, and to

make recommendations concerning a suitable new structure as well as

adequate machinery for a wage review on a continuing basis Ayo (1991:45)

and Adamolekun (2002:131). Ayo (1991:46) explained that the Commission

began sitting in Lagos on 23rd

October, 1963, and submitted its report on 30

April, 1964. The Commission introduced for the first time a national

minimum wage on geographical basis. In recommending the minimum

wage, the Commission deviated from the traditional criteria on which the

previous ones were based (i.e the concept the pattern of expenditure)

Okotoni (2004:108). Rather, the Commission based its recommendation on

the principle of a “living –wage”. The living wage was described as “high

enough to enable a wage earner… to support himself and his family out of

his wage” Nigeria (1970:13). It recommended 50% increase in some areas,

and 100% in others based on cost of living in the various localities Okotoni

(2004:109) and Nigeria (1970:13-14). The country was divided into four

zones: Zone 1-Lagos plus environs; Zone 2- Jos urban, Kano, Ibadan ect;

Zone 3- Eastern/Western Nigeria: Zone 4 – Northern Nigeria (excluding the

towns in Zone 2) Okotoni (2004:109). These recommendations were

generally accepted as policy. However, neither the reform for the

commission resolved the issue of minimum wage in the country as it feared

“the problems of impracticability of its implementation” bearing in mind

that “many employers may be unable immediately to meet with the cost, and

this could result in immediate retrenchment of labour and aggravating of the

already serious problem of unemployment”. Thus, the commission

postponed its resolve the future policy. The government could not pay the

recommended wage but accepted that employees at the bottom should get

fairly higher increases than those on higher income Akpan (1982:56). This

principle has been adopted in subsequent salaries and wage increases in the

country. The question of minimum wage in the country remains unresolved

till today. Apparently, the regime in power deemed it necessary to introduce

another reform which was called the Adebo Commission.

Adebo Commission

The appointment of Adebo Commission was announced on 14th

July,

1970, by the Federal Military Government to review the existing wages and

salaries at all levels in the public services, and the statutory public

corporations and State – owned companies Okotoni (2004:108) and Olowu

(1997:11).The Commission‟s Report noted a major distinguishing feature of

the Commission from the previous ones: This is the first time in Nigerian

history that a Commission has been asked specifically to take account of the

level of remuneration in the private sector in determining the level of pay in

the public sector” (Nigeria 1970:13). The Commission recommended

uniform allowances for public servants as against the former zonal

variations. The Commission recommended several ways by which

inflationary trend in the country could be tackled to ensure that the salary

review was not overtaken by inflation. One major issue visited by the

Commission is the conflict between the administrative and the professional

staff on the post of Permanent Secretary. The Commission clearly pointed

out that, professional officers both in written and oral representation-

complained bitterly that the post of Permanent Secretary has been treated

practically as the monopoly of administrative class. In its reaction, the

Commission recommended that:

-The Permanent Secretary must at the same time, a thinker and a manager be

sensitive to “(a) the political implications of departmental actions and (b) the

need to co-ordinate his department‟s plans with those of other Ministries

over which he has no control”.

- It should be laid down in the most unambiguous terms that the post of

Permanent Secretary will go to whoever best possesses the qualifications

and qualities laid down, and it will not matter for this purposes whether the

candidate was originally an administrative or a professional officer.

- Steps must be taken to show that Government seriously intends that the

post of Permanent Secretary will be filled in the above manner, by

maintaining lists of potential candidates drawn from the entire services, and

ensuring that they are used by the appropriate recommending and appointing

authorities as the basis for their judgment.

-Arrangements must be made to give professional officers the opportunity of

exposure to the kind of experience training that fits a person for the highest

managerial position. (Nigeria, 1970:15).

Finally, the Commission recommended a New Grading Structure. The

New Grading structure comprised a maximum of 20 scales as against the

previous array of 100 incremental scales and super scales Okotoni

(2004:109). That new grading structure also introduced time scales (i.e. each

scale contained a number of incremental steps). Above all, the Commission

recommended increase in wages and salaries, called award Okotoni

(2004:109). According to the Commission, the Award is aimed “only to

afford some relief against the rise in the cost of living”. A major problem

created by the Adebo Award was that it added to the financial burden of the

Federal Government as some States had to seek for the assistance of the

former to be able to pay the award. This has been the trend ever since.

Federal Government has always fixed salaries and wages and made awards

without consulting the State governments or considering their financial

ability. Considering the disparities in salary scale of the Federal and state

civil service, the reform could not meet its objectives because many states

were not able to pay their staff. Besides, the civil service characterized with

inefficiency and ineffectiveness which made it unable to contribute

positively to national development. These problems necessitated the

introduction of the Udoji Commission in 1972 Okotoni (2004:109).

Udoji Commission

On 25th September, 1972, the Federal Military Government

established the Public Service Review Commission (PSRC) to focus

primarily on the need to secure adequate development and continued

utilization of manpower and to increase the efficiency and effectiveness of

the public services in meeting the challenge of a development-oriented

society Okotoni (2004:110) and Adamolekun (2002:123) This Commission

headed by Chief Jerome Udoji perhaps has the broadest terms of reference,

and accordingly the longest time for review (Nigeria, PSRC, 1970:7).

According to Commission Report, it sat for two full years (September 1972-

September, 1974). To achieve the goal of “adequate development and

optimum utilization of manpower and to increase the efficiency and

effectiveness of the Public Services in meeting the challenge of a

development –oriented society,” the Commission concluded that a “New

Style Public Service” was needed that would be tailored toward “result-

oriented management”. By implication, the new style public servant was

expected to be an action- oriented manager who “does not merely administer

the established order by processing matters that come before him; he

manages, that is, he makes things happen, by organizing men, money and

materials in order to achieve the particular objectives of his ministry or

organization within time targets. “(Nigeria, PSRC,1970:7). In describing the

“New Style Public Service”, it noted that:

All this require a Public Service staffed and led by

professionals… who possess the requisite skills and

knowledge and can function effectively in applying

skills and knowledge to establish goals and achieve

results. The professional civil servant is a specialist

in a particular field. He joins professional

associations, subscribes to journals, attends

seminars, and adapts to the latest advances and

techniques in his field of specialization.

The emphasis on the professionalisation of the Nigerian Civil Service

is one of the most important aspects of the reform proposals the

implementation of which government failed to pursue. This issue of

professionalisation was not revisited until 1988 which formed one of the

main components of the reforms. The vision of the reformers to create a

“New Style Public Service” was capable of transforming the service if truly

and thoroughly actualized, but, unfortunately, the reform and even

subsequent reform in the country have failed woefully to achieve this noble

objective.

One major problem of the Public Service identified by the

Commission right from the no-set of the review was shortage of competent

manpower.

Of the various problems facing public management in Nigeria, by far

the most serious is the shortage of experienced, skilled manpower. This

constraint is seen in all categories and all levels of the service. From the

birth of the Federalism, this has been the prime problem impeding public

management (Nigeria, PSRC, 1974).

Accordingly, the Commission proffered several recommendations

ranging from reorganization of the Civil Service Commission, better

remunerations of public servants to training. Some of these

recommendations were accepted in principles by Government but not in

practice, while others were partially addressed i.e the acceptance of the new

grading system, training and development of officers Akpan (1982:54)

Okotoni (2004:111). Two points should be of interest. First is the similarly

between the Udoji‟s recommendations and those of the Fulton Committee in

Britain in 1968 Okotoni (2004:111). Both reforms emphasize

professionalism. Secondly, several of the issues raised by the Commission

are still very pertinent today, including the recommendations human

resources management in the Nigeria civil service. It is interesting to point

out that the question of Permanent Secondary to bear a new designation –

Director- General had its root in this Commission‟s Report. The

Commission noted that the Permanent Secretary “is virtually the Chief

Executive or Director- General of the Ministry and we recommend that he

be formally designated” (Nigeria 1974:17). This recommendation was not

implemented until the 1988 Civil Reforms Olowu (1997:156). Similarly, the

issue of professionalisation of the Public Service which was a major

component of the 1988 Civil Service Reform has its root in the Report. Also,

the Report bought a partial solution to the conflict between the professional

and the administrators. Every Grade level 15 and 16 officer, whether a

professional or administrator, became eligible for appointment as a federal

Permanent Secretary Ayo (1991:78). Government was very excited about

the Report. This was evident in two ways. First, Government decided that

the accepted recommendations of the Report be implemented promptly. For

instance, the new salaries were to be effective from April 1, 1974; (and

arrears due to be paid in one lump in January, 1975), with 50% tax-free)

Okotoni (2004:111-112). But more importantly, the government was

optimistic about the outcome of the reform: When the main

recommendations of the Review Commission are implemented, the Public

Service of Nigeria will be transformed into one of the most efficient of its

kind in the world.”

Unfortunately, government‟s expectation was disillusioned. Nigerian

civil service has remained inefficient and flaccid.

The 1988 Civil Service Reform

According to Adamolekun (2002:156) and Okotoni (2004:111-112),

the 1988 Civil Service Reform was preceded by a study team set up to

examine the Nigeria Civil Service in the mid „80s and beyond in early 1985

under the leadership of Professor Dotun Phillips. The panel submitted its

Report in September, 1985 Adamolekun (2002:156). He further explained

that the recommendations emanating from the Report were not implemented

until January, 1988. In the Presidential Budget Address to the Nation,

Okotoni (2004:111) stressed that President Ibrahim Babaginda announced

the following “fundamental changes” in the Civil Service Structure:

-The Ministry- The Minister will now be the Chief Executive and

Accounting Officer, rather the permanent secretary.

- Tenure of office- The Permanent Secretary‟s appointment is already

political, and its duration is at the pleasure of the President. Hence forth,

holders of that position will retire with the government which appoints them

unless, of course, an incoming administration decides to re-appoint them. It

follows that any officer who is offered the post of Permanent Secretary may

have an option whether or not be accept it.

-Professionalisation of the service: Each Ministry will now be

professionalized. Every officer, whether a specialist or generalist, will now

make his career entirely in the Ministry or Department of his choice, and

thereby acquire the necessary expertise and experience through relevant

specialized training and uninterrupted involvement with the work of the

Ministry or Department.

-Federal Civil Service Commission: Under the new arrangement, each

Ministry will undertake the appointment, discipline and promotion of its

staff under general and uniform guidelines to be provided by the Federal

Civil Service Commission.

-Ministerial Structural Changes: The Ministry of Finance and National

Planning were to be merged and be called the Ministry of Finance and

Economic Development. Details of its responsibilities and functions are

being spelt out separately.

-The Central Bank of Nigeria became autonomous, and its Governor was to

work directly with the office of the President. Furthermore, a Permanent

Planning Commission was established, called the “National Planning

Commission” and to undertake functions which were spelt out.

-Budget Office: The Department (Revenue, Recurrent and Capital

Estimates) of the Ministry of Finance and Economic Development was

transferred to the Presidency to afford the necessary fiscal supervision and

control. In turn, the Productivity, Prices and Incomes Board which was part

of the Presidency was thereafter transferred to the Ministry of Finance and

Economic Development to enable the Board function properly within the

economic policies of Government.

On 1st February, 1988, an Implementation Task Force on the Reform

was established under the leadership of Vice Admiral Patrick Koshoni

Okotoni (2004:112) and Adamolekun (2002:157). The task force which took

off immediately came out with an implementation guideline.

The assessment of the reform is based on the objectives set for the

reform and the implementation of its major components. Decree 43 of 1988

which gave the reform of legal backing spelt out the objectives of the reform

which include the following:

- The attainment of Government‟s objectives;

- The promotion of a better execution of the laws and programmes of the

Government;

- An efficient and expeditious administration of Government business.

- The reduction of expenditure and improvement of economy to the fullest

extent consistent with efficiency in the operation of Government; and

increase of efficiency in Government policies and programmes to the

fullest extent practicable through specialization and through other

measures.

Using the above criteria, the evaluation will be carried out in that

order. The utmost governments‟ objective is efficiency. Frankly speaking, it

is difficult to assert that the reform brought efficiency to the public service in

Nigeria. In fact, the reforms further aggravated the hitherto problems facing

the Civil Service. For example, the question of conflict between the

Permanent Secretary (than renamed Director- General) and the Minister

remained unresolved until October, 1997, when another reform addressed

the problem. The idea of making the Minister the Accounting Officer in the

Ministry was inimical to the progress of the service since his tenure as a

political official was rather fleeting. The 1997 reform did not only restore

the title of the Permanent Secretary, but his role as the accounting officer in

the Ministry was restored Okotoni (2004:113).

The second objective is the “promotion of a better execution of the

laws and porgrammes of the government. “The method of appointment and

the temporary tenure of office of the two political heads in the Ministry

actually made them less committed to the issue of accountability.

The second yardstick for assessment is the level of successes of the

implementation. No doubt, the government committed a lot of resources and

efforts to ensure a successful implementation of the reform. All the major

components of the reform were implemented though in varying degrees. For

example, each Ministry was to set up Internal. Audit Unit. Though these

units were set up by some Ministries, they were incapacitated Olowu

(1991:76). Okotoni (2004:113) explained that in some cases, a Grade Level

06 officer was made to head the Unit. Apparently, it was difficult for such a

junior officer to reprimand his superiors, or the Minister or the

Commissioner at the state level. Again, though in principle, the three

mandatory departments were created by the Ministries, they were sometimes

manned by just a Grade level 12 officer, instead of a full Director (Olowu,

1991:76). According to Okotoni (2004:113), several problems beset the

reform, including:

-Inadequate Information: The announcement was rather sudden.

Similarly, the civil servants who were the principle implementers were not

adequately prepared for the implementation. A reform of this magnitude

requires several of the actions for its implementation to have been taken

before not after the announcement of the reform.

-Natural Resistance: Reforms are generally met with resistance, as

people are usually afraid of innovations. This reform was no exception. To

change the status quo overnight without adequate information and

preparations was a bitter pill for many to swallow. Thus, many were

sceptical about the reform, and preferred to sit on the fence, and at best

remained observers, while others openly criticize and resisted it.

-Many Changes and Counter- Changes: There were so many changes

and counter- changes within a very short time. For instance, the original

announcement did not include, State and Local Governments, but both State

and Local Governments were later included. Similarly, the signing of

cheques was originally assigned to the Minister, but this was later assigned

to Director- General and Director for Financial and Supply. All these

changes contributed to the slow pace of the implementation as officials were

cautious about the implementation.

-Poor Incentives: The incentives given to public servants in Nigeria do

not match those of their counterparts in the private sector. Thus, the public

sector has become unattractive to skilled personnel, who have continued to

move to the private sector, and, in some cases, join the „brain-drain‟ wagon

to other countries in search of greener pastures.

-Fear of Post- Military Regime: Fears were expressed from some

quarters that the reforms might die with the exit of the Military Regime, that

is, the civilian administration might not be too keen on carrying the burdens

of the implementation of the reforms; although these were also very good

reasons why the reform should outlast the regime.

The above problems not-withstanding, in fairness, the reforms set a

landmark in the history of administrative reforms in Nigeria. It was a

department from the previous reforms, even though some of its components

had their roots in some of the past reforms. It was, however, unmistakable

that the 1988 reform seemed to have had as its primary objective the

„presidentialising‟ of the Civil Service system, and, to do this, it has tried to

make the Nigerian Civil Service system imbibe the structure, even if not the

operational efforts, of the America Civil Service Okotoni (2004:114).

1997 Civil Service Reforms

On May 28, 1997, the Provisional Ruling Council set up a committee

to review some aspect of the civil service Adamolekun (2004:115). The

Reform‟s report introduced some changes which include the following:

The Minister: The Minister should continue to be the Head and the Chief

Executive of the Ministry, while the Director- General is the chief adviser to

the Minister and the Accounting Officer of the Ministry. The reform defined

the relationship between the Minister and the Director-General. The

Director- General is accountable to the Minister in the implementation of the

policy and porgrammes of the Ministry. He is also accountable to the

Minister in the co-ordination, supervision and the management of human,

material and financial resources of the Ministry. Where he disagrees with the

Minister in this regard, he is to make his views known to government

through the Head of Service. The new relationship appeared healthier than

that of 1988 reforms which made the Minister the Accounting Officer which

led to several abuses, conflicts and inefficiency in some Ministries. The new

arrangement was designed to facilitates and maintain harmonious working

relationship between the Minister and the Director- General.

Permanent Secretary: The reform restored the title of Permanent Secretary

in the Ministry and that he should be a career officer. It also revised the

concept of Director- General being designated as Deputy Minister.

Head of the Civil Service: The reform re-established the post of the Head

of Civil Service which was scraped by the 1988 reforms. It is to be a

separate office under the Head of State or the President. The reform

recommended that the appointment of the Head of the Civil Service and the

Secretary to the Government of the Federation should be made from

amongst Permanent Secretaries or officers of equivalent rank. Government

accepted this recommendation as it affects the Head of Civil Service, but in

the case of the Secretary to the Government, the Head of State is free to use

his discretion as to the field of selection.

Parastatals: The reforms scraped the following parastatals:

i. National Council on Inter- Governmental Relations (NCIR)

ii. National Committee Against Apartheid.

iii. Centre for Democratic Studies (CDS).

Okotoni (2004:115), Adamolekun (2002:158) and Adeyemo

(2009:66) observed that the scraping of the National Council on Inter-

governmental relations and Centre for Democratic Studies does not appear

to be in the national interest. Though the performances of NCIR like any

other government parastatal in Nigeria was not particularly impressive, it

was thought that there is a better alternative- that is to make efforts to

revitalize it. Similarly, the scraping of Centre for Democratic Studies

appears to be one of those anti-democratic postures of the military

Adamolekun (2002:158). The country stands to benefit a lot from such

centre if well managed.

2.1.2 Strategies for Implementing Civil Service Reforms in Nigeria

The essence of carrying out reforms in the civil service is to make

result- oriented and efficient in its service delivery. Generally, two broad

strategies are adopted in implementing civil service reforms, namely:

institutional development and capacity bundling (Onah 2000:290-291).

(a) Institutional Development:- There are some institutional development

interventions in civil service reforms. Prominent of these interventions are

personnel management systems and procedures, and downsizing

programmes.

(i) Personnel Management Systems and Procedures (Ezeani, 2006:314)

quoting the institute of personnel management, defined personnel

management as that part of management concerned with people at work and

their relationships within an enterprise. Its aims is to bring together and

develop into an effective organization the men and women who make up an

enterprise and having regard for the well- being of the individual and the

working groups to enable them to make their best contributions to its

success. Personnel management is therefore, an activity aimed at ensuring

efficient use of the personnel of an organization to achieve maximum

productivity for it and at the same time enable the employee to gain

optimum psychological and material benefits from his or her work. One of

the major objectives of any civil service reforms is to make the personnel

system to function effectively and to acquire the skills necessary for

overcoming future challenges in the system. In Nigeria today, this is carried

out through staff training, development, promotion of staff based on

performance, selection of staff with high literacy levels and cognate skills.

Another objective of the reform is the enhancement of salary and wages and

other fringe benefits in order to avoid brain drain of high profile staff.

Regrettably, this has not been actualized in Nigeria due to lack of adequate

political will, safe aggrandizement, weakness of the currency, inflation etc.

(ii) Downsizing:- This is the process of reducing the size and cost of civil

service to an affordable and sustainable level Amoke (2008:103). This

comes as either rationalization or retrenchment of staff. Onah (2000:290)

quoting Wescott, said that this leads to macro-economic stabilization and

also assists government to restore budgetary stability. Onah posited that

downsizing should only take place after serious ministerial reviews so as to

identify redundant post and personnel to be laid off. This is because this

process is associated with problems “ranging from fierce acrimony,

antagonism, and misinterpretation or misapplication of the guidelines. At

times this is used to get rid of targeted staff and individuals perceived to be

downsizings exercise is taken than politicians fill up the gaps again with

sons, daughters, and friends of loyalists by way of extension of unnecessary

patronage”.

Capacity Building for Improving Service Delivery: Another ultimate

goal of civil service reform is improving service delivery. Capacity building

involves scaling up the outfits qualitatively and quantitatively so that

government can be seen as organization‟s human resources skill profile or

overall efficiency, it part of an active process (Onah, 2000:291). Capacity

relates to what is required for a particular organization to achieve its propose

effectively, efficiently and sustainable. Capacity building is more dependent

on, and necessary for institutional development because neither individual

nor organizational performance can improve without appropriate incentives,

rules and systems. It is necessary because managing institutional changes

requires high level management skills.

2.1.3 NEEDS: Its Meaning, Origin and What it Stands for

Our aim to capture the review on NEEDS is to fully comprehend the

document which gave birth to the development of SEEDS, LEEDS and

CEEDS in Nigeria. However, our major concern is on SEEDS reform

programmes in Enugu state public service.

The National Economic Empowerment and Development Strategy-

NEEDS is Nigeria‟s plan for prosperity. According to (Soludo, 2004:1)

NEEDS is “the people‟s way of letting the government know what kind of

Nigeria they wish to live in, now and in the future”. On the other hand, the

National Planning Commission (NPC, 2004:12) puts that: “NEEDS is the

government‟s way of letting the people know how it plans to overcome the

deep and pervasive obstacles to progress that the government and the people

have identified”. Furthermore, it is also a way of letting the international

community know where Nigeria stands-in the region and in the world and

how it wishes to be supported. The National Economic Empowerment and

Development Strategy Report of 2004 states that “NEEDS came into being

to provide answers to the crucial questions of national interests such as

“what is the vision for Nigeria? What kind of Nigeria do we want for

ourselves, for our children, and for the rest of the world? These questions

were the starting point in creating a plan for prosperity.

The plan for the creation of NEEDS is based on the constitution, the

Kuru declaration, previous initiatives, such as Vision 2010; and the

widespread consultation and participation throughout Nigeria that was part

of the NEEDS process. The programme‟s core values recognize this

importance‟s of respect for elders, honesty and accountability, cooperation,

industry, discipline, self-confidence, and moral courage. On this note, many

scholars such as (Onah, 2006:7; Nwatu, 2006:117 and Aminu 2009:56)

believed that NEEDS is a corporate plan for Nigeria‟s development. This

plan covers virtually all sectors of the Nigeria economy, public service

inclusive.

NEEDS in a nutshell means an action plan, it is rooted in the lessons

experience with past plans, NEEDS also distinguishes itself from earlier

plans by its participatory process (to ensure ownership and sustainability),

larger scope and co-ordination (to reflect Federalist Planning), and content

more focused, realistic, and reform based). In other words, NEEDS is a

living document that may continue to be modified as lessons of

implementation emerge.

The Mission Statement and the Raison D’etre of NEEDS

The National Economic Empowerment and Development Strategy –

NEEDS aims at restructuring the government to be more efficient in

delivering essential services (Oladipo, 2009:37). It also seeks to transform

the public service from a haven of corruption to an institution that spurs

development and serves the people.

It is noted from the NEEDS Document (2004) that the number of

government jobs will decline, and the cost of running the government will

fall dramatically, as in-kind benefits for public servants or civil servants,

such as subsidized housing, transport, and utilities, are monetized. Reforms

and regulations will be implemented to ensure greater transparency and

accountability, and corrupt practices will be outlawed. Government activities

and budgeting will be informed by a framework that connects policy with

government income and expenditure.

In view of scholars like (Nwatu, 2007:186; and Adegoroye, 2005:67)

NEEDS is Nigeria‟s development plan, that is inspired by current challenges

for change and vigorous growth. It identifies the major problems Nigeria

faces today and suggests how these problems can be solved. It sets realistic

targets for progress and outlines a way of funding activities to achieve them.

As a development plan it integrates economic, political, social and

technological development efforts at the Federal, state and local government

levels. In this effort, the State Economic Empowerment and Development

Strategy (SEEDS) and the Local Economic Empowerment and Development

Strategy (LEEDS) have been established to implement the programmes at

the state and the local levels in order to improve public services in Nigeria

(NEEDS, 2005:13). However, the major focus of NEEDS has been

summarized by (Soludo, 2004:2) as follows:

Empowering people: NEEDS will empower people by allowing the

private sector to thrive, NEEDS creates opportunities for employment and

wealth creation. It empowers people to take advantage of these opportunities

by creating a system of incentives that reward hard work and punish

corruption, by investing in education, and by providing special programmes

for the most vulnerable members of society.

This objective is also accompanied by other sub-objectives such as

poverty reduction, jobs creations and improving health care services. As it is

presented in the NEEDS document:

“Poverty reduction is the most difficult challenge

facing Nigeria and its people and the greatest

obstacle to pursuit of sustainable socioeconomic

growth. The poverty in 1980 to 66 percent in 1996

by 1999 it was estimated that more than 70 percent

of Nigerians lived in poverty. Life expectancy is a

mere 54 years, and infant mortality 77 per 1,000

and material mortality 704 per 1,00,000 live births

are among the highest in the world”.

In creating more jobs, it emphasized that the rate of urbanization in Nigeria

is among the highest in the world. Since manufacturing is stagnant, there are

few jobs for the growing urban population, and unemployment is currently

estimated at 10.8 percent. NEEDS will reform the public sector services to

collaborate with the private sector enterprises in providing job opportunities

in Nigeria.

Promoting Private Enterprises:- Another target objective of NEEDS is

the promotion of private sector, thus “if the private sector is to become

Nigeria‟s emphasized improving infrastructure, improving agriculture and

promoting other sectors through private sector.

Changing the Way the Government does its Work:- NEEDS seeks to

restore trust in government as a facilitator of development, an institution that

craters or maintains an environment that enable Nigerians to implement live

hood strategies and achieve personal goals. The government has to stop

trying to run business and redirect it efforts to providing essential services. It

must sell off the business currently under its control in order to free up

labour and funds that it can use to improve basic services.

Under NEEDS, public services will build on these frameworks:

Strengthening and modernizing the anti-corruption organizations;

Exposing unethical and illegal practices and punishing those who engage

in them;

Encouraging organizations to adopt and publish formal codes of ethics‟

Establishing formal training in ethics and fostering leadership by

examples,

Enacting a Fiscal Responsibility Pact and a Right to Information Act in

Governance. The Fiscal Responsibility Pact will require government

agencies to publish annual audited accounts within six months of their

financial year and set up a revenue stabilization fund into which windfall

revenues will be transferred. The Right to Information Act will promote

openness and feedback in the public services.

These objectives have been captured and carefully shown below:

NEEDS and its Goals at a Glance

Fig 2.1

Empowering people, Promoting private Changing the way the

Health, education, enterprises, Government does its

Environment, security and rule work public sector

Integrated rural of law, infrastructure, reforms, privatization

Development, finance sectoral and liberalization,

Employment and strategies, privatization government, trans-

Youth development, and liberalization, parency and anti-

Safety nets, gender trade regional corruption, service

And geopolitical integration and delivery, budget

Balance and globalization and expenditure

Pension reforms reforms

Source: National Economic Empowerment and Development Strategy

(NEEDS) Report (2004).

Vision, Values and Principles

Goals

Wealth Creation ,

Employment Generation ,

Poverty Reduction,

Value Reorientation

Mission Statement/ Objectives and Macroeconomic Framework

Institutional Framework for the Implementation of NEEDS

Fig 2.2

` sS Public-Private

Partnerships (Peer

Review Mechanism)

National Council on

Development Planning/

/Planning/ joint Planning Board;

States‟ SEEDS, Labour

And Civil Society

Source: National Planning Commission (NPC, 2004).

The Presidency

National

Economic

Council Federal Executive Council

The National

Assembly

Independent Planning

Committee

Ministry of

Finance

Budget office

And Central Bank

National Planning

Commission/NEEDS

Secretariat

Line Ministries

And Parastatals Service

Delivery

Unit

Private Sect or /Donor Community, Others

2.1.4 Current Public Service Reforms in Nigeria: The Reform

Objectives

The Nigerian public service at its inception was a creature of the

British colonial Administration and oriented in the best image of the British

model of administration (Okoli and Onah, 2002: 204). It remained “a class

and closed career service” maintaining among its many inherited traditions a

powerful generalist administrative elite (Emezi, 1985). A lot of its structural

features remain basically the same, though the adhoc reformist approach of

the various Nigerian Governments has created some modifications. Hence,

several administrative reforms have been carried out in Nigeria in response

to specific needs.

A reform, according to (Obasi, 1993:40) is simply a purposeful

change introduced with a view to totally eliminating (or just attenuating)

certain identified vices and imperfections existing in any system or

organization. Furthermore, he explained that administrative reforms

specially refers to purposeful or goal- oriented changes made in order to

improve the skills, the standard of performance and level of productivity of

members of an organization. Green (1976:4) in his own argument opined

that reform usually proposes to cure maladministration, improve

productivity, save the taxpayer‟s money, increase effectiveness and public

responsibility.

Reform as a field of ethics according to Ibrahim (1990:5) is concerned

with the enumeration of virtues in terms of “good- bad” “right-wrong”

dichotomy of human actions and behavours which are subjected to constant

reviews overtime. They are based on factors which may be social, economic,

political or religious. An administrative reform as Quah (1976:11) put it is “a

deliberate attempt to change both (a) the structure of procedures of the

public bureaucracy, ie reorganization or the institutional aspect involved i.e

the attitudinal aspect, in order to promote organizational effectivenessness

and (b) attain national development goals”. On the other hand, Caiden

(1970:17) sees it as the artificial inducement of administrative

transformation against resistance. Leeman (1976:23) succinctly put

administrative reform to mean a re-organization of broad scope and of high

intensity. This, Jelowich (1982:121) summarizes to consist of six parts.

(a) Definition of the objects, aims and areas of reforms,

(b) Collection of the maximum amount of information on the areas to be

reformed,

(c) Critical analysis and appreciation of the situation,

(d) Drafting projects of alternative solutions

(e) Choice of the best solution

(f) Application of the solution selected and observation of the results of the

reform.

According to Chikulo (1981:9), administrative reform has a moral

content. It seeks to create a better system by removing faults and

imperfections. Administrative reform could be general (broad) or particular

in focus. Its effect can be short-term or long- term. The efficacy of a reform,

he further explained that is largely dependent on the extent to which its

strategy and provisions fundamentally confront the imperfections, which the

reform sets to deal with. Hahn Bee Lee (1970:302) cited in (Okotoni,

2004:100) puts that administrative reform is an effort to apply new ideas and

combination of ideas to administrative system with a conscious view to

improving the system for positive goals development.

In summary, administrative reform is a conscious effort directed

towards an organization to transform the status quo with the injection of new

ideas in order to enhance efficiency.

On this note, Njoku (2005:48) believed that NEEDS and SEEDS is a

reform programme introduced by the government to bring necessary changes

in the public service at the federal and state levels. He added that over the

years, the government has initiated, and implemented many reforms to

revive the public sector services in Nigeria without much improvement and

success, it is therefore believed that a holistic reform be introduced to

restructure the Nigerian Public Service”.

The current reform agenda for the public service according to Njoku

(2005:49) consists of seven main development programmes which are as

follows:-

i. To right- size the sector and eliminate ghost workers;

ii. To restore professionalism in the public service;

iii. To rationalize, restructure and strengthen institutions of public

service.

iv. To privatize and liberalize the government services;

v. To tackle corruption and improve transparency in government

accounts;

vi. To reduce waste and improve efficiency of government expenditures;

and

vii. To enhance economic coordination;

The introduction of current government public service reform has also

led to the establishment of a number of institutional and structural

measures aimed at redressing the situation in the Nigerian public service.

The measures include:

i. Open and competitive tender arrangements for government

contracts.

ii. Establishment of a due process mechanism to vet and eliminate fat

from government contracts;

iii. Massive anticorruption campaigns involving all public officials,

including the president‟

iv. Public sector reforms to reduce, if not completely eliminate,

opportunities for corruption, especially through the comprehensive

monetization of benefits to public officers.

v. A committed focus on privatization and auctions for government

licenses (leading, for example to the liberalization of the

telecommunications sector);

vi. Establishment of an independent anticorruption agency and an

economic and financial crimes commission;

vi. Establishment in the President‟s office of a policy and programme

monitoring unit to build a comprehensive policy database to follow up on

all decisions of the President and monitor programmes in ministries and

pubic enterprises.

Enforcing Anticorruption Laws:- Under the on-going public sector

reforms, to enforce existing anticorruption laws, the government established

the Independent Corrupt Practices and Other Related Crimes Commission

(ICPC) and the Economic and Financial Crimes Commission (EFCC)

(NEEDS, 2004:88) and Akpederi (2005:275). The commissions have

commitment to tackling financial crime, money laundering, and other

economic misconduct that has created difficulties for Nigeria with the

Organization for Economic co-operation and Development (OECD)

Financial Action Task Force. Soludo (2006:7) observed that in view of the

pervasiveness of corruption in Nigeria, early in the reform period the

government has set up task forces to help formal institutions attack selected

aspects of the problem, including corrupt practices in all the sector of the

public services.

The work of the ICPC and EFCC is fully complemented by ongoing

reforms of justice administration and the police. The efforts of the reforms

are targeted on anticorruption campaign, recruitment and training of

personal, provision of equipment, increased wages and allowances, and

general improvement in conditions of service (Soludo, 2004:88).

Reforming and Strengthening Public Procurement:- Historically, the

award of contracts in Nigeria has been perceived as lacking transparency.

Inflated contract costs and processed that were closed, discretionary, and

well- designed conduits for abuse of public power were systematic.

According to Njoku (2005:52), the background to the establishment of

public procurement revolves around the Budget Monitoring and Price

Intelligence Unit in the public services, otherwise known as Due Process

Office which should be rooted in the financial practices of inflated costs of

government expenditure and other unscrupulous practices which

characterized public programme implementations. The corrupt scenario of

financial practices in Nigeria was properly captured by the genuine and

patriotic observations of Oby Ezekwesili, Former Senior Special Assistant to

the President on Budget and Due Process and Formal Minister of Solid

Mineral Resources on the state of affairs in the country especially regarding

public accountability. According to Ezekwesili (2004:25):

“undoubtedly, the perception of Nigeria as a

nation that has compromised its developmental

potentials because of poor state stewardship of

resources is more factual than anyone of you can

imagine. That in the over three decades of its

status as an oil producing nation indicators of the

country have shown more declining trend than a

progressive course, represents proof of the

monumental abuse of public resources”…

In an effort to eradicate corruption, the government under the Nigeria

Economic Strategy Programme instituted the National Price Intelligence

Database. It was this idea that working with the then Principle Secretary to

the President, Stephen Oronsaye, that developed into what is today

implemented by NEEDS as “Due Process”.

Oransaye explained that “due process means the application of the

principles of openness or transparency, competency or qualification and

competition or equal opportunity to all in the conduct and award Federal

Government contracts to ensure that the winner, the cost and the quality are

right for every Kobo of the Nigerian Public treasury that is spent in the

purchase of goods, services or works. The benefits of due process as he

explained are:

Good government of public money and assets resulting in the reduction of

corruption;

Improved system planning and project preparation work leading to

accuracy of costing, cost/benefits analysis and prioritization in deciding

the spending pattern and plan for any given year;

Improved fiscal management through more effective expenditure,

institutions, processes and control mechanisms;

More optional resource allocation decisions to achieve clearly articulated

public policy objectives through enhanced identification of the costs and

benefits of alternative expenditure decisions.

Improved liquidity management of public funds;

Improved technical efficiency in managing and utilizing resources

through improved information flow more relevant to decision

responsibilities to managers;

Enhanced transparency and accountability of government, providing

better historic information as a guide to the future.

Due Process Compliance Certificate:- Under the implementation of the due

process by the reform, government has institutionalized the Due Process

Compliance Certification (DPCC) which as three leveled certification

process that comprises:-

i. Budget Preparation Work Certification;

ii. Contract Award Process Certification; and

iii. Completion Work Certification.

Budget Preparation Certification:- At the Budget Preparation

Certification, the goal is to ensure that planning is linked to budgeting and

accounting especially through the process of selecting and monitoring of

projects Ndubuisi, and Njoku (2005:58). Both of these aspects are fully

integrated within the system to ensure consistent prioritization, and the use

of the accounting system to provide financial information on project put-

turns.

During the submission of ministerial/spending unit budget proposal in

response to the budget call circular, ministries and spending unit are

mandated to submit a package of their capital proposal to the BMPI for

processing. To determine adequacy of project perception, the BMPI sector

specialists and staff evaluate the answers of spending units to some generic

questions. Some of these include details of alternative studies, anticipated

benefits, feasibility study, technical feasibility, economic feasibility, etc.

Contract Award Certification:- Upon the appropriation by the National

Assembly, the expenditure management stream of the DPC commences.

Specifically, the BMPI specialists working closely with all the relevant

spending units must certify that each appropriated project has met the

following conditions before contracts can be awarded for its execution:

i. Tender documents have been prepared in line with FGN‟S guidelines;

The tender process has been carried out un-compliance with FGN

guidelines;

ii. Pre-qualification criteria were appropriate Cleary stated and fully

complied with.

iii. Selection process has been carried out in line with FGN requirements.

iv. The lower/best-evaluate bidder determined as qualified to perform the

contract satisfactorily was recommended for contract award.

v. Management has approved selection of good reasons for change in

recommendations which have been provided.

vi. Contract price is comparable with international experience.

vii. It has been verified that successful bidder continues to meet pre-

qualification requirements.

viii. Appropriate performance security has been indicated.

A certificate of compliance with contract award process issued by the

BMPI means that an appropriated project has fully satisfied all due

process requirements for contract award, thereby permitting the spending

unit to process with signing of contract and advising the Treasury

through the Minister of Finance to make payment of mobilization costs

(Njoku, 2005:56).

Completion Work Certification:- This is a certification that a project

has fully satisfied all due process requirements for release of additional

funds. Specifically, that it has met the following conditions:

i. Funds released earlier have been fully;

ii. Site visit has been carried out to assess progress of work on contract;

iii. Contract work is being carried out as agreed in contract.

Percentage of work completed is commensurate with funds spent;

Anticipated project results are being achieved or if not appropriate

measures have been taken to ensure that results and goals identified under

the contract are fully achieved.

Hence, no further releases are made on an awarded contract until the

BMPI sector specialist working jointly with relevant officials of each

spending unit issues a certification that a project has not all the conditions

listed above.

The unique feature of the BMPI is its use of external sector specialists to

both validate and track budget and expenditure activities effectively,

efficiently and effortlessly without having to depend on a huge internal

technical staff. This has been ensured in the implementation of projects in

the state government levels, Enugu State Public Service has also put up

measures in the State Economic Empowerment and Development Strategy

(SEEDS) to checkmate due process in managing public funds Okeke

(2005:6).

Reforming the Bureaucracy:- In the on-going reform in Nigeria, the

government‟s objective has its major target on reforming the Public

bureaucracy in Nigeria by implementing a range of administrative reforms

that reduce the incentive for corrupt behaviour through strategies such as

monetizing benefits (cars, housing, utilities, domestic assistance drivers);

redefining and redesigning processes to reduce delays; rotating officers; and

increasing supervision (Soludo, 2004:89), Abdullah (2009:378) and

Akpederi (2005:217) .

On reforming the public bureaucracy, the Enugu state government has

introduced some training programmes, public/civil servant promotion

programme and intensive human development programmes. According to

Udagbala, the then Chairman of Civil Service Commission Enugu State „the

Public Service Department of the Head of Service which is specifically in

charge of training has embarked upon training and re-training of the civil

servants in the state”. He further added that “as the pressure on training need

mounted, the Staff Development Unit of each ministry is revived and it now

carries regular trainings”. On the other hand, Okoh (2005:14) attributed the

improvement in staff training and promotion of public servants in Enugu

State to the commitment of the state government to implement the reform

directives of the State Economic Empowerment and Development Strategy

(SEEDS).

Increasing Information and Transparency:- By increasing information

and transparency according to the Soludo (2004:32) a committee has been

set up to implement the Extractive Industry Transparency Initiative. The

privatization and liberalization of key economic sectors have been deliberate

action to entrench transparency and accountability and to build consensus in

support of reforms.

Adegoroye (2005:66) noted that information and transparency would

enable the public service to effectively give account all the monetary

investments made by the government within a specific period. As a matter of

Adegoroye, believes that information and transparency would improve the

campaign against corrupt practices in the public sector service and increase

the accountability of public service in Nigeria.

Major Areas of Current Public Service Reforms

In apparent realization of the need to discard the hitherto fire-fighting

approach to civil service reforms, one of the first steps taken to ensure

continuity and sustainability was the institutionalization of the reform

process through the creation of the Bureau of Public Service Reform in 2003

as an integral part of NEEDS programme (Oladipo, 2009:354). This is an

agency charged with the responsibility of designing strategies for enhancing

the efficiency, reliability and continuity of the system through

mainstreaming ethical and professional standard. Initiatives in this direction

according to Oladipo (2009:369) include the following:

(i) Formulation of Vision and Mission Statements:- Each Ministry,

Development and Agency (MDA) is to be driven by statements of its vision

and mission which have been democratically formulated to ensure

commitment and serve as a yardstick for measuring performance. In relation

to the vision and mission statement, NEEDS through its SEEDS outlet

ensured that Ministries, Departments and Agencies work towards

performance Improvement Bureau (PIB) directives. In a forward statement,

the Performance Improvement Bureau (Office of the Head of Service)

Enugu State Government put thus:

In its commitment to the delivery of excellent

customer service in line with one of the SEEDS

strategic objectives to improve the delivery of

basic social services, the Enugu State Government

established the Performance Improvement Bureau

(PIB) in the Office of the State Head of Service to

serve as the service delivery monitoring unit.

Institutionalization of Service Charter:- The character contains

organizational responsibilities in terms of range of customers, service

available, output expectations, delivery schedules, avenues for complaints

and redress (Akpederi,2005:22). He further added that it provides the basis

for measuring effectiveness in terms of timely and quality the letters and

spirit of Part 111 of the charter the public service in Africa.

Professionalization of the Service:- According to Armstrong (1997:89)

and Oladipo (2009:366), Professionalism manifests in skill, work behaviour,

knowledge improvement updating and reinforcing the performance of

functions and duties and the continuous refinement of these attributes, while

the government provides the enabling environment. Several approaches have

been undertaken in this wise. Adegoroye (2005:102) attributes

staff/manpower training and development programmes as a means of

achieving professionalization in the Nigerian public service. Training and

development has been different in various approaches by different authors.

Onah (2003:13) defines training and development as an organized and

coordinated development of knowledge, skills and attitudes needed by an

individual to master a given situation or perform a certain task within an

organizational setting. On the other hand, Cole (1997:110) defines training

as teaching operational or technical employees how to do the job for which

they were hired. It is any learning activity, which is directed towards the

acquisition of specific knowledge and skills for the purposes of an

occupation or task. Development to Cole (1997:111) refers to teaching

mangers and professionals the skills needed for both present and future jobs.

The National Economic Empowerment and Development Strategy

(NEEDS, 2004) specifies that staff training and development of public/civil

service is one the core priorities which must be given almost attention. Also

according to Mr. Okwor, the former Head of Service Enugu State, “training

and development of our staff is the ultimate target of SEEDS to increase

productivity and performance in the Enugu State Public Service”.

There are sub-targets under the Proffessionalization of the service

according to Oladipo (2009:369) namely:-

(i) Rightsizing the Services:- This is a scheme to get rid of those who

are incompetent professionally, technically and ethically. The

criteria for consideration include performance inefficiency,

unsatisfactory character, inadequate entry qualification, lack of

cadre-entering skills, promotion examination failure and retirement

age.

(ii) Restructuring of MDAs:- This is to ensure that academic and

professional qualifications match task positioning. It also enlarges,

where appropriate, their functions to include oversight

responsibilities, while application of information technology is

being encourage.

(iii) Service-wide Capacity-Building:- This is meant to sharpen skills of

officers, a process being carried out through re-positioning of

existing training institutions such as the Administrative staff

collage of Nigeria (ASCON), Centre for Management

Development (CMD) and Federal Training Centres, establishment

of the civil Service Collage in Abuja for executive and middle

level management training, strengthening of the Management

Development Office in the Office of the Head of Service of the

Federation, harnessing and utilizing opportunities provided by

International Cooperation and Technical Assistance.

(iv) Review of Performance Management System:- This is to transform

the service from one of input output process system to a result-

oriented performance system to take advantage of such

externalities like systematic training and re-engineering as well as

evolving a reward structure that pitches performance with payback.

(v) Review of Public Service Rules and Regulations:- A major

exercise was carried out in year 2000, but in order to met the

imperatives of fast –tracking the ongoing reforms, a 13-member

Presidential Committee on the review of public service rules,

regulations and procedures was constituted in February 2005.

Promotion of Ethical Conduct:- The Civil Service Handbook prescribes

the code of ethics in government business as discipline, loyalty, honesty,

courage, courtesy, cooperation, tact, industry, tidiness, helpfulness and

kindliness. To facilitate this conduct, the following sources of authority have

been identified:

Constitution of the Federal Republic;

Acts of the National Assembly;

Government Procurements and Publications;

Public Service Rules;

Financial Regulations;

Government Notices in Gazettes;

Circular Letters from Ministries and Departments; as well as

Official notices and instructions in ministries or Division within

Ministries/Departments.

In promoting ethical conduct, a number of steps have been taken.

According to the Report of the Nigeria National Workshop on Public

Service Ethics in Africa (2002) and (2005), these include the creation and

strengthening of anticorruption agencies, creation of other institutional

platforms for maintaining ethnical standards, initiating complementary

reforms to combat corruption and promote transparency and accountability,

maintaining appropriate balance between the oversight functions of the Civil

Service Commission and MDAs in staff discipline and empowerment of the

top hierarchy of the public service. According to Ekpenkhio (2003:59) one

of the complementary reforms to combat corruption and promote

accountability is the policy of monetization which became imperative

because of the large-scale and unjustifiable cost of governance as issues of

official transportation, housing, health and others continued to be sources of

financial waste and leakages. The monetization phenomenon, therefore,

confers the dual advantages of rightsizing the service as well as providing

the platform for ridding the system of corruption in high places. Another

notable complementary reform to combat corruption and promote

accountability is the privatization programme, which has been given a new

lease of life.

2.1.5 The Enugu State Economic Empowerment and Development

Strategy (SEEDS): A Critical Revew

SEEDS is a documentary plan of Enugu state on the path towards

attaining the millennium Development Goals (MDGS). The strategy has

been developed through a participatory process involving a wide range of

stakeholders including officials of the state and local governments, members

of the State House of Assembly, civil society organizations, traditional rulers

and representatives of the business community (Enugu State SEEDS

2004:1). Donor agencies including Department For International

Development (DFID), United Nations International Children‟s Emergency

Fund (UNICEF), United Nations Industrial Development Organization

(UNIDO) and the World Bank also made considerable inputs to the

development of the strategy as well as Federal Government institutions.

According to the SEEDS document 2004, the overarching goal is to

be achieved within an institutional context defined by four strategic themes

as follows:

(i) Optimal use of existing institutions, including governments at all

levels, multilateral organization, NGOs and community based

organizations.

(ii) Enhanced transparency, communication and citizen participation in

government, implementation and monitoring.

(iii) Public sector reform to enhance the capacity of the public sector to

deliver basic services.

(iv) Improved public financial management to ensure greater

accountability as well as effective and efficiency public speeding.

Furthermore, the strategic framework proposes five strategic objectives

which represent specific areas of policy and programmes intervention. The

five strategic objectives are as follows:

(i) To improve the level and quality of basic infrastructure;

(ii) To improve effectiveness and efficiency in the delivery of basic

social services;

(iii) To support entrepreneurship and self –help efforts, with special

emphasis on agriculture and small - scale manufacturing and

services:

(iv) To create an investment friendly environment ; and

(v) To ensure sustainability of the environment and natural resources.

Strategic Themes and Proposed Actions Under the Enugu State SEEDS

Communication, Transparency and Participatory Governance

Strengthen institutional framework for community and neighborhood

development – CDCC, neighborhood associations

Regularly communicate government planes, actions and performance

Monitoring mechanism for Poverty Reduction Strategy (PRS) to

involve a wide range of stakeholders including civil society Enugu

State SEEDS (2004:4).

Sound Public Financial Management

The Enugu State SEEDS document 2004 under page 4-5 also specifies

that sound public financial management will be guarantted through the

proposed strategies:

Eliminate budget deficit by 2006

Update tax database. Review revenue leakages and collection systems

to plug revenue leakages

Reduce proportion of total recurrent expenditure to 60% of total

budget by 2007.

Reduce government debt obligations to sustainable levels

Eliminate pension backlog and commence contributory and funded

pension scheme

Publish and widely disseminate budget from 2004.

Carry out yearly reviews of budget implementation and communicate

results

Publish annual audited accounts from 2004.

Public Sector Reform

Under the public sector reform, Enugu State SEEDS (2004:4-5) states

that the state public state would be reformed on the core areas as follows:

Computerize payroll to eliminate fictitious names

Right-size public sector through voluntary severance

Rationalize and strengthen service delivery institutions

Set and monitor service delivery standards for key agencies

Privities state-owned enterprises

Institutionalize due process and code of ethics

Optimal Use of Existing Institutions

Also under the same document, Enugu State SEEDS (2004:4-5)

proposed to make optimal use of existing state owned institutions through

the underlisted strategies:-

Harmonies donor support

Enter public-private sector partnerships in service delivery and

infrastructure development

Enhance partnerships with other tiers of government.

Strategic Objectives and Targets of Enugu State SEEDS at a Glance

Support Entrepreneurship and Self- help Efforts

Entrepreneurship and self-help have been recognized under the Enugu

State SEEDS reforms as strategic means of fast-tracking the development of

the state and under the SEEDS document 2004 page 6, the following

strategies were proposed:

1. Increase average household income by 150% between 2004 and 2009.

2. Reduce unemployment and under- employment to 3% and 5%

respectively by 2009.

3. Increase average income of farming households by 200% between

2004 and 2009.

4. Increase incomes of women by 200% in the period 2004-2009.

Improve Delivery of Basic Social Services

As highlighted earlier, improving quality service delivery is one of

cardinal objectives of NEEDS and SEEDS reforms in the public service.

Enugu State SEEDS (2004:6-7) proposes the following steps towards

improving the delivery of social services;

Reduce under- 5 mortality to 30 per 1,000 live births by 2009.

Reduce infant mortality rate by 10% in 2004-2007.

Reduce maternal motility rate by 10% per 1,000 mothers by 2009.

Reverse growth in prevalence of HIV/AIDS by 2007.

Reduce incidence of priority diseases by 2007.

Reduce incidence of malnutrition among children: reduce incidence of

stunting, wasting and underweight to 5%, 1% and 3% respectively.

Increase access to medical services.

Improve satisfaction levels for the quality of medical care at all levels.

Increase adult literacy rate to 90% by 2009.

Increase access to primary schools

Increase primary school enrolment to 100% by 2009.

Increase secondary school retention rate especially for girls.

Improve performance of Enugu State students in external

examinations at primary and secondary levels.

Improve satisfaction levels for the quality of education at all levels.

Reduce the number of reported crimes

Reduce number of deaths due to crime

Increase satisfaction with the quality of justice delivered at all levels.

Increase by 1,000 the number of people accessing legal aid each year

up to 2009.

Reduce by half the average period between offence and judgment by

2009.

Improve Basic Infrastructure

Efficient public service cannot be achieved without adequate

provisions of basic infrastructures because of this recognition, the Enugu

State Government under the SEEDS reform proposed the followings:-

Increase percent of population with access to safe water to 90% by

2009.

Eliminate, by 2009, the incidence of diseases related to poor water

especially cholera

Increase the percentage of population with access to proper

sanitation facilities.

Increase, to 90% by 2009, the percent of population with access to

electricity

Construct or repair at least 300km of access roads by 2007.

Construct or repair at least 50km of feeder roads by 2007

Source: Enugu State SEEDS (2004:7).

Ensure Sustainability of the Environment and Natural Resources

To ensure the sustainability of the environment and natural

resources, Enugu State SEEDS (2004:7-8) proposed that:-

1. Increase the proportion of forest area to total land area

2. Increase gross domestic product per unit of energy use

Create an Investment Friendly Environment

Under the creation of investment friendly environment, Enugu State

Government under the SEEDS reform 2004 page 7-8 proposed that:-

1. Increase State Gross Domestic Product by 100% between 2004 and

2009.

2. Increase internally generated revenue to 20% of total revenue by

2007.

3. Increase average household income by 150% between 2004 and 2009.

4. Reduce unemployment and under- employment to 3% and 5%

respectively by 2009.

Sub-Objectives of the Enugu State (SEEDS)

According to the Enugu State SEEDS (2004-2009) document,

achieving the strategic themes/objectives and action plans of SEEDS the

following sub-objectives as outlined below shall be pursued:-

Enhance Viability of SMEs & Micro-Enterprises

Enhancement of the viability of Small Medium Enterprises (SMEs)

and micro-enterprises under the Enugu State SEEDS focused on the

following :-

Support managerial and technical capacity building for SMEs and

micro-enterprises.

Promote formation of cooperative societies.

Facilitate access to capital from private sector, international

development agencies e.t.c

Simplify and improve regulatory environment for starting and

operating SMEs.

Introduce Alternative Dispute Resolution (ADR) for commercial

disputes Source: Enugu State SEEDS (2004:8).

Strengthen Technical Skills Acquisition

Skill acquisition deals with empowering people with the potentials

to be self independent. Enugu State SEEDS (2004:8) is adopting the

following strategies towards improving the technical skill acquisition:-

- Refocus technical institutions on relevant technical education

- Re-equip formal technical institutions

- Support development of informal apprenticeship schemes

Improve Incomes of Farming Households

In developing the agricultural sector of the state, Enugu State SEEDS

(2004:8) proposes the following steps:-

Establish clusters of small- holder farms

Improve agricultural extension services

Encourage and support development of linkages to downstream

agriculture.

Increase Incomes of Women

Women empowerment is important in achieving societal

development and in this regard, SEEDS intends to focus on proposed plans

below:-

1. Provide micro- credit facilities to women

2. Provide programmes to build technical and managerial capacities of

women Source: Enugu State SEEDS (2004:9).

Education

Education has been stressed as the foundation of societal

development, Soludo (2006) opined that education is a means of liberating

the human mind from the bondage of uncivilization and ignorance. Enugu

State SEEDS (2004:8) proposes the following towards the development of

education:-

Strengthen early child care and development education

Improve supervisory and monitoring systems for education at all

levels

Improve primary and secondary education facilities

Enhance adult literacy through non- formal channels

Health

Improve health supervisory and monitoring systems

Involve civil society and private sector

Give attention to priority diseases

Consolidate health resources

Improve health infrastructure at all levels

Integrate primary and secondary health care services

Security

Support community involvement in security by formalizing informal

policing systems.

Enhance conflict prevention capacity in formal and informal policing

systems Source: Enugu State SEEDS (2004:9).

Access to Justice and Basic Human Rights

Review, and where necessary revise, the Laws of Enugu State.

Increase availability and improve the quality of legal advice and legal

aid for the poor

Enhance knowledge of legal rights and obligations and raise

awareness of legal processes.

Support and promote the use of ADR, including the traditional justice

system.

Improve the infrastructure of justice sector institutions.

Improve justice delivery to vulnerable and disadvantaged groups (e.g.

women, children, disabled, people living with HIV/AIDS, etc) Enugu

State SEEDS (2004:9).

Improve Basic Infrastructure in the following areas:

In the provision of basic infrastructures such as road, water, electricity

among others, SEEDS (2004:60) proposes specific action plans to achieve

massive development of basic infrastructures through the following:-

Road

Complete ring road linking all major communities in the State.

Provide feeder roads to farm clusters

Provide at least two new roads to absorb projected increase in traffic

Water

Get FG assistance for pipeline replacement in Enugu and Nsukka

urban

Involve private sector in management of water distribution and

collection of rates.

Electricity

FG assistance in revitalizing Oji power station

Integrated Rural Development

One Community Development Committee (CDC) project in each

community of the State

Conditions for Private Sector Investment

Fiscal incentives to investors.

Concessions in ICT infrastructure, movie production, business

tourism.

Secure FG approval for free- trade zone.

Improve and simplify Land Registry process.

Enhance security of life and property.

Solid Waste Management

Support private sector operators in waste disposal

Seek and support private sector investment in waste recycling plant

Energy

Secure private sector investment in Coal Exploitation

Source: Enugu State SEEDS (2004:10).

Major Targets of SEEDS Reforms in Enugu State Public Service

The Enugu State SEEDS document just as NEEDS, has major areas of

reforms in the state public service and according to the Enugu State SEEDS

(2004:39-48) the reform areas include the following:

Sound Public Financial Management -:The rationale for sound financial

management as a strategic theme of the SEEDS flows directly from the first

strategic theme identified .According to the document, “if the State

Government will hold itself accountable, then it has an obligation to use

public financial resources in the most efficient manner to achieve the

determined goals, objective and targets in this document (SEEDS 2004: 41).

Public financial management in this context according to Agu (2009:217)

entails ensuring that all revenues accruing to the government are correctly

determined and actually collected. It also includes measures to ensure that

expenditure patterns refers policy priorities, that wastage is minimized in the

use of public funds, and that the optimal valves for money is obtained for all

expenditures made.

Also in the sphere of public financial management is the issue of debt.

The government should have sustainable debt level. A sustainable debt level

is the level of debt whose repayment and servicing requirements do not

constrain a government, either in the present or in the future, to meet its

obligations and to make the required investments in human services. Debt

repayment and servicing has been a major constrained on the resources

available to ability of the government to execute development projects.

Public financial management in a nutshell thus entails ensuring that

sound principles of financial management are put in place so that the

government always has the resources it needs to carry out development work

and to run the machinery of the state. The State Government must spend the

minimum necessary on running itself and so have the bulk of its resources

devoted to the provision of basic infrastructure and social services.

The link public financial management and accountability is even better

demonstrated with the imperative to publish financial statements for the

public to know which funds came in and how these funds were used.

Accountability demands that both the budget and the actual financial

performance be made available to the public on a timely basis. This is why

Ademolekun (2002: 40), Ogabido (2008:12) and Agu (2009:217) posit that

accountability is the key factor to effective governance. Government must be

accountable at all times to ensure effective governance and build confidence

in the people.

Under the SEEDS (2004:42), the State Government therefore proposes

to take the following steps to ensure sound financial management:

(i) Review the budget process to endure conformity of the budget with

the principles and objectives of the Enugu State Government;

(ii) Publish the annual budget and ensure it is widely disseminated in

the public domain.

(iii) Institute a budget monitoring committee review progress along

the budget and to issue a report to the public on the budget and to

issue a report to the public on the implementation of the budget;

(iv) Engage private sector consultants where necessary for accelerated

revenue assessment and collection, with the intention of reviewing

the system in place for leakages. The contact will be performance-

based and would be for a period of two years. This will be done in

conjunction with the State Board of Internal Revenue.

(v) Reduce debt to sustainable levels by curtailing borrowing thus

leaving behind a sustainable debt level.

(vi) Publish financial statements annually starting from the year ending

31 December 2004.

Public Sector Reform: According to SEEDS (2004:42), Enugu state

governmeent also aims at improving the capacity of the public services in

the state and effectively break out the cycle of poverty of the people by

enhancing their well-being and providing basic services. It is obvious that

the role of the public sector in this respect is indispensable. Reference had

been made of the problems in the public sector. Issues highlighted include

corruption, depletion in capacity and duplication, leading to inefficiency and

waste.

The reform of the public sector is therefore a seminal principle on

which successfully implementation of the SEEDS is hinged. To successfully

implement the SEEDS, there is a need to build a public sector that is service

–oriented, responsive and efficient. The public sector needs to have

procedures and policies that are consistent with best practices all over the

world.

Considering the current condition of the public sector, and in view of

the fact that it will not be feasible to achieve reform in all the area at the

same time, specific areas have been identified as being the most urgent. The

criteria used to identify these areas are as fellows:

(i) Closeness to the people: Services that are close to people, and are

rendered directly to the people have an urgent need for reform

because the impact of reform is more readily felt on the populace.

Some of these areas include provision of services such as utilities.

(ii) Critically to the achievement of the objectives of the Poverty

Reduction Strategy (PRS). Some area are more critical to the

achievement of the objectives of this poverty reduction strategy,

either because they underlies some of its basic principles, or

because they form the mechanism for delivering on some of the

strategic objectives. Also reforms in some area will lead to

substantial savings Source: Enugu State SEEDS (2004:42-43).

Based on these criteria, according to Enugu State SEEDS (2004:43), the

following areas have been identified as most critical for this aspect of

reform:

(i) Service Delivery: Ministries will be required to prepared plans for

service delivery improvement. Such plans, which will be

monitored by the Executive Council. Other mechanisms for service

delivery improvement such as service recipients will also be

developed Enugu State SEEDS (2004:44).

(ii) Elimination of Ghost Workers: According to the Enugu State

Performance Improvement Bureau 2007 document and Enugu

State SEEDS (2004:43-44), the impact of ghost workers‟ is that it

bloats that it bloats the recurrent expenditure profile of the state

civil service. Therefore, enumeration of the staff of the state civil

service will be a high priority. Computerization of the payroll will

be carried out to ensure that ghost workers are identified and

eliminated. Payroll records will contain photographs and finger-

prints of the individuals concerned, thus eliminating the possibility

of duplication. The experience in other states where this has been

carried out suggests that the exercise can reduce payroll costs by

up to 20%.

(iii) Right–Sizing of the Public Sector: The Enugu State (SEEDS

2004:43) states that reform in the public sector will include making

sure that the appropriate numbers of staff are employed in the

public sector and for appropriate jobs. There will therefore be a

review of the staffing of all government agencies to ensure they are

appropriately staffed. The option of voluntary severance will be

offered where there are observed overstaffing problems, while staff

will be transferred to areas of need as their skills permit. Emphasis

will be placed on recruiting fresh graduates into the system, as well

as achieving gender balance in the composition of the public

service.

(iv) Capacity Building:- According to Enugu State SEEDS (2004:45),

„it has been identified that there are severe capacity gaps among

government officials‟. To this end, the reform of the public sector

will include efforts to build the capacity of public servants. Due to

limitations of resources, priority will be given to areas that support

the other strategic themes, such as the following areas:

Accounting systems, budget and planning, tax administration, because

of their relevance to the strategic theme of sound financial

management.

Systems and institutions for data collection and analysis, especially

the State Planning Development Commission (SPC).

Community – led development which is expected to ensure optimal

use of community based institutions and organizations.

Other areas will be identified in the course of the period.

There will also be an increased effort to improve overall competence

level in the state‟s civil service by reviving the public service training

institutes. Competence models will also be developed for specialized

groups of civil servants.

Integrity: The cods of conduct for public servants will be revised and

widely communicated to public servants. A public service ethics

committee will be set up to review the code and address breaches of

the code.

Due process: A due – process office will be set up within the office of

the Executive Governor, with the task of reviewing contracts and

transactions of given sizes to ensure adherence with the laid down

procedures. In addition, the office of the auditor general will be

strengthened to carry out routine due process and value for money

audits Source: Enugu State SEEDS (2004:44-45).

Enugu State SEEDS and Optimal Use of Existing Institutions

One of the basic principles of the SEEDS is to make optimal use of

existing institutions by building partnerships for poverty reduction, ensuring

provision of qualify service delivery, among governments at all levels, civil

society, community – based institutions as well as business organizations. It

is believed that this will improve the effectiveness and efficiency of the

strategy by addressing the problem of duplication in the functions of societal

institutions as well as the encroachment of government into areas that are

better handled by other institutions of society Enugu State SEEDS

(2004:45).

The trend worldwide has been to revise the role of the state and re-

define the roles of different institutions in the public and private sector. The

underlying principle in this respect is that governments should not be

involved in activities that are better carried out by other institutions of

society, but should rather concentrate on creating a favourable and enabling

policy environment, as well as regulation.

According to Enugu State SEEDS 2004 Report, the State Government

proposes to take the following steps.

Collaborative arrangements with other tiers of Government: The

emphasis here is on effective and solid inter-governmental relationship

with tiers of government and public agencies. From the SEEDS 2004

document, Government proposes to seek collaborative arrangements for

programmes in areas of concurrent legislation such as education, health,

agriculture and environmental sanitation.

Public – Private Sector Partnerships: Public-Private Partnership

according to Soludo (2006:47) and Adegroroye (2005:398) intends to

encourage effective collaboration in the service delivery. Under the

Enugu State SEEDS 2004 reform, the State Government intends to

emphasize the use of partnerships with the private sectors as a way of

overcoming its limitations in aspects of financial, technical and

managerial capacity. The Government will actively seek private sector

partners in the areas of service delivery, environmental management and

infrastructural development, especially utilizes and transportation.

Privatization of State Owned Enterprises: This will also be one of the

manifestations of this principle. State owned enterprises would, in the

period 2004 – 2007, be given out to private sector managers under

performance – based management contracts. This is considered a better

option than immediate equity privatization, as this course of action will

lead to the enhancement of the value of these enterprises prior to full

equity privatization.

Partnerships with Civil Society Organizations (CSOs):

The government will also seek partnerships with civil society

organizations such as NGOs in its delivery of basic social services. It will

also make extensive use of community – based organization as platforms for

the delivery and management of social services. Notable areas where this

will be applied include the areas of education, health (especially primary and

secondary health care), security and gender empowerment. The use of

community – based organizations is also expected to reinforce the first

principle of communication and participatory governance since these

organizations will be a gateway to communities for the provision of

information and feedback on government policies and programmes.

Partnerships to Promote Environmental Sustainability:-

The government will actively seek partnerships with the private sector as

well as with Federal Government agencies and international organizations to

promote environmental sustainability, in particular where they relate to pro-

poor economic growth derived from natural resource assets, and improved

delivery of environmental services to support human development

Source: Enugu State SEEDS (2004:46).

Addressing Inequality and Securing Basic Human Rights Through The

SEEDS Reform.

Another principle considered core to the SEEDS reform is the issue of

addressing inequality and securing basic human rights. It is obvious that

protection from arbitrary use of state power and injustice is a fundamental

part of welfare, and that poverty implies inequality. Individuals and

communities who are socially and economically excluded usually suffer

deprivation of their basic human rights and poverty. It has been identified for

instance that some groups of people are more vulnerable to poverty and to

economic shocks for example women, the disabled, and in recent times,

people living with HIV/AIDS (Enugu State SEEDS 2004:46).

In other words, any effort to address poverty of justice in Enugu state

therefore has to address the issues of inequality and more vulnerable groups,

in particular, this need to build a society where women‟s rights are respected

and protected SEEDS (2004:46). Consequently, the SEEDS includes a

deliberate effort to ensure preference for groups more vulnerable to poverty.

Also central to this principle is the issue of basic human rights through the

judicial system. An accessible and efficient justice system can thus help to

create a level paying field for everybody in society.

The government proposes to adopt the following approach to ensuring

access to justice and protection of fundamental human rights:

Revival and Formalization of Traditional Judicial Systems:-

This is expected to reduce the pressure on the courts. This approach is

also in line with the principle of optimal use of existing institutions. Also

relate to this of developing alternative dispute resolution techniques and

procedures for traditional rulers.

Reform of the Office of the Director of Public Prosecution (DPP):

The Office of the DPP will be restructured to ensure speedy prosecution of

cases and subsequent reduction in the number of people on the awaiting-trial

list and the length of time they stay in this condition. This is also in line with

the principle of public sector reform.

Establishment of a network of women‟s rights educators and

advocates who will train other women on rights issues and also monitor

and report abuses on women.

There will also be efforts to look at the possibility of community

service in place of jail terms to address the issue of prisons co

To address other issues of inequality, the State Government proposes

to take the following approach:

(i) The Government will work with international development

agencies and civil society to popularize the recently – passed law on the

rights of widows. In addition, this law will be given teeth for enforcement

using traditional judicial systems.

(ii) Development and passing of a bill for the rights of disabled: The

proposed bill is expected to address issues of provisions for disabled in

building facilities, prevention of discrimination against disabled people.

(iii) Development and passing of a bill to address the problem of

domestic violence against women and children.

(iv)The government will continue with its present policy of

subsidizing the cost of anti retor-viral drugs for people living with

HIV/AIDS. Legislation will also be made to address the issues of

discrimination against people living with HIV/AIDS. It is however

considered that such legislation will have greater effectiveness if it is done at

the national level, so the State Government will work with civil society,

other state government as well as National Assembly to effect national

legislation on this issue. This will be supported by already ongoing mass

sensitization of the populace in partnership with civil society, to address the

stigmatization of people living with HIV/AIDS

Source: Enugu State SEEDS (2004:48).

2.1.6 Institutional Arrangements of Civil Service Reforms in Nigeria

In recognition of the fact that the reform process will not be credible and

sustainable without government demonstration of the will power to make it

effective, a number of cross-cutting and specialized bodies have been

created to propel particular aspects of the reform agenda Soludo (2004:89)

and Oladipo (2009:378).

Ogunbambi (2005:67) noted that on the reform itself, three notable

bodies have been created. According to him, the first is the National Reform

Committee (NRC) comprising 15 top figures in Government, including

ministries, judges, national assembly leaders, heads of special bodies such as

the ICPC and EFCC and headed by the President himself. The second goes

by the name of Service Delivery Initiative (SDI) established to address the

challenge of making services respond to citizens and customers. Thirdly, the

Bureau of Public Service Reforms was established in 2003 to act as the

think-tank for the reform process.

On capacity building Maduabum (2005:143) explained that a number of

institutions have been re-invigorated and re-positioned, while new ones have

been established. Among the former are the ASCON, FTCS, while the

newly established Civil Service College in Abuja belongs to the latter. Also,

the Presidential Committee on Review of Public Service Rules, Regulations

and Procedures was established in 2005.

The greatest attention has understandably been on corruption, an

institutionalized and legitimized cankerworm that has eaten deep into the

fabric of the society in almost all spheres. Oransaya (1984:46) noted this

when he asserts that “perhaps that most endemic of the pathologies of the

Nigerian bureaucracy is the existence of rife bureaucratic corruption”. One

of the early institutions established to fight corruption is the Code of

Conduct Bureau and its executioner, the Tribunal, as far back as 1990

(Oladipo, 2009:371). He further explained that it was set up to assist public

officers to be accountable and adopt transparent practices in carrying out

their duties. The recent additions to the Code of Conduct Bureau include the

Independent Corrupt Practices and other Related Offences Commission

(ICPC), the Economic and Financial Crimes Commission (EFCC), and the

Due Process Office (DPO) to tackle various aspects of corruption. The

Budget Monitoring ad Price Intelligence Unit of the Presidency has also

been created to enforce standards in public sector procurement in addition to

the institution of a Steering Committee and Procurement Reform

Implementation Unit (PRU) to prepare the ground for the establishment and

takeoff of the policy- making body on all procurement and award of contract

matters. In a seemingly unending attack on corruption, Anti-corruption and

Transparency Units (ACTUs) have been created in 145 MDAs while studies

on systems, practices and procedures of 44 public sector organizations have

been undertaken to identify dysfunctionalities and corruptive tendencies

Oladipo (2009:372). On a last note, Oladipo stated that the Federal and

Developmental Tenders Boards, being bastions of corruption, have been

abolished and replaced by the time- tested and strengthened Ministerial

Tenders Board.

2.1.7 The Current Public Service Reform in Nigeria: The Scorecard

An appropriate place to start the assessment of the effects of the current

public service reforms in Nigeria on the service and the polity in general is

the policy of deregulation Maduabum (2005:34). It can hardly be disputed

that the labour environment has witnessed a calm, even if uneasy, since

foisting the concept of wage deregulation on the nation. This is because

salaries and wages paid by each tier of government are outcomes of

negotiations based on the criterion of ability to pay. The beneficial aspect of

the policy as (Oladipo, 2009:374) noted is that it has become illegal and

unfashionable for Federal workers to call on state workers to embark on any

form of strike or labour dispute. It also serves as an impetus for governments

at the lower tiers to intensify their revenue generating drives so as to meet

agreed commitments. A few observations are, however, made (Abdullah,

2003:44). Inter service disparities in pay many ultimately exacerbate labour

unrest as well as induce brain between services nationally and

internationally. This is already being witnessed, as the Federal Service

remains the first choice in labour movements. Other issues bordering on the

logicality and morality of adopting the principle of ability to pay when all

public employers depend on the federal pool for its resources, and the

revenue allocation formula has continued to cause ripples in the polity.

The effect of institutionalization of service charters can be felt in the

MDAs. For example, Oladipo (2009:376) and Buba-Ahmed (2004:71)

pointed out that the Nigerian Immigration Service now provides information

to the public on the guidelines and procedure for the issuance of passports,

display notices in conforming with its service charters, the Federal Ministry

of Works not only provides information on the profile of contractors

executing road projects, it also directs these contractors to liaise with village

heads and important groups of benefiting communities for involvement and

participatory monitoring. Although these are creditable achievements which

can be built upon, the activities of especially the Federal Road Maintenance

Agency (FERMA) agents in Lagos continue to remind us that these civil

servants are indeed civil masters. There remains lot to be done to persuade

the leopard to change its spots.

On the other hand, Maduabum (2005:91) observed that a lot has been

achieved in the bid to professionalize the service. In rightsizing the service,

an estimated 30, 056 workers have been identified for disengagement from

service with 8,916 officers already severed by October 2005. On the other

hand, Maduabum (2005:100) observed that in the Federal Ministry of

Finance, for example, where only 15% of the entire staff is know to be

professionals, there has been the replacement of generalist heads of technical

departments with professionals. Adegoroge (2005:57) in his view stated that

there is little doubt that the restructuring of the finance ministry is a success

story being emulated by other MDAs. In the areas of the review of rules and

regulations, a Presidential Committee was appointed whose report had been

approved and implementation is already carried out in parts (e.g exit from

service) and others are in progress such as alignment with underlying

principles and practices for promoting effectiveness. These achievements

are, however not without their black spots. On this view Oladipo (2009:376)

noted that severance in the tenure of the present administration has become a

highly dreaded adventure because of unfulfilled and unpaid entitlements. To

him, it has assumed a cross-discipline and cross-sectoral contagion afflicting

the general public service, including even the Armed Forces. This is in

addition to poor employment conditions, insecurity of tenure and the

attendant uncertain future upon retirements.

Furthermore, Ede (2005:99) and Nweze (2005:37) observed that there is

an emerging consensus that the greatest achievement yet recorded by the

Civil Service reforms is in the area of promotion of ethical conduct. The

combined activities of the ICPC and EFCC have today justified the saying

that the fear of the EFCC is the beginning of wisdom. Operating under a

philosophy of zero tolerance for corruption, the EFCC has undertaken an

effective coordination and enforcement of several anti-corruption laws,

including the Money Laundering Prohibition Act 2004, Corruption Practices

and Other Related Offences Act of 2002, Advanced Fee Fraud and Other

Related Offences Act of 1995, the Failed Banks (Recovery of Debts) and

Financial Malpractices in Banks Act of 1994 and its amended Banks and

Other Financial Institutions Act of 1991, and the Miscellaneous Offences

Act of 1983. The impact of the implantation of these laws and the activities

of the anti-corruption agencies as Oladipo (2009:375) and Anazodo

(2009:130) observed have witnessed many highly- officials, including

Ministers, Permanent Secretaries, Governors, and key functionaries of the

legislature and the judiciary investigated and made to go through the

rigorous of judicial trials. Oladipo (2009:375-378) argued that it has not only

resulted in the ignominious exist from office of some of them, but has sent

positive signals that the era of sacred cows and unabashed compromise of

ethical standard is fast vanishing from the nation‟s shores.

Saliu and Olawepo (2009:72) stressed that in the area of consulting and

contracting, the procurement reforms and due process have streamlined the

system, resulting in the efficient and effective process of awarding contracts

to ward off all avenues for wastages and leakages. Imperatives as these

achievements are, they are not without their nuances of apprehension. First,

there are fears in certain quarters that the anti-corruption agencies are being,

or have the tendency of being used as political weapon of mass destruction,

although this is being vehemently refuted. Second, the claim that there are

no sacred cows continues to agitate the mind because of full-blown meaning

of corruption should find culpable anyone involved in the syndrome of

biological children either for admission purposes or employment purposes or

that of third term because of its immorality and unconstitutionality. It is

either the EFCC is yet to reach him or incapable of reaching him. Third, the

process leading to designing these reforms is not only cumbersome and

unnecessarily pluralistic it leaves a sour taste in the mouth for the legacy of

capacity building for doing things that the country had witnessed since

independence.

To buttress this point, Oladipo (2009:379) argued the reform on ethical

standard had inputs from the United Nations Department of Economic and

Social Affairs (DESA), the UNDP Regional Bureau for Africa and the

World Bank; involved visitations to the UK and the USA; had several

workshops held, and had countless numbers of bodies going by various

names of steering committees, technical teams, private sector specialists,

task forces, etc churning out information that are either obvious, already

known or which are contained in the files of Government. Someone was

bound to ask if the process has been cost-effective.

2.1.8 Current State of Public Service Delivery in Nigeria

Our interest to assess the current state of public service delivery in

Nigeria is to present a true reflection of the Nigerian public service in the

task of nation building. However, what is meant by service in the public

sector hinges on the lives of activities; streets and street lightening; roads,

tarred and un-tarred; waste collection improvement; telecommunication lines

being installed; schools and clinics being built or renovated; water supplies

and other familiar items Addullah (2009:343). The balance achieved in the

key areas as health and education should contribute to our social stability;

appropriate balance between private and public reassurance that guarantees

choice. Thus, an assessment of “public service” became focused on the

range of activities. So, in what should be regarded as the current state of

public service delivery, we are forced to evaluate how dramatic the changes

are in the demographics of service delivery. What is happening in the

primary health care delivery, the impact on the poorest women and children

the management of a plethora of educational problems, and the emerging

skills that will enable the country to be globally competitive and the

provision of sustainable water supplies? In relation to the above question,

Bub-Ahmed (2004:10) stated that the chains of icons are provided in our

public policy and expenditure. Thus, budgetary allocations to these various

activities over time determined the “goodness or fitness” of the public

service delivery Buba- Ahmed (2004:12). However, the determinant also as

he further argued lies in the assessment of policy aberrations. The extent to

which our evaluations of policies such as of “poverty alleviation

(elimination) and individual hardships as to policy target but may be more of

identifying how policies became a source of both inefficiency and inequity.

Considering this, Abdullah (2009:112) remarked that how to compel or

encourage greater public sector responsiveness in service delivery becomes

the moot point. In this wise, the point to be made is that we are witnessed to

both rising and declining absolute and relative allocations to development in

social services without sustainable water, health and electricity services

resembling “touch light” experiences. “Epilepsy” is the resultant effect of

the infection of illusions and mirages in public policy and expenditure; the

more the number, the less one understands. Of course, the appropriate size of

public service will remain always relative rather than absolute.

2.1.9 Causes of Inefficiency and Low Productivity in Nigerian Public

Service

Public service is an instrument of development in any society, enhance

many have referred it as a vertical agent of national development. In other

words, public service constitutes those organizations, institutions, or bodies

owned by the government; it also includes those employees hired by the

government that render and carry out day-to-day government activities

Abebayo (1989:113). However, assessment shows that inefficiency and

unproductiveness have characterized the Nigerian pubic service. According

to Public Service Review Commission Report of 1988;

“public sector occupy the most strategic and vital

position in national development of any nation, but

comparatively, Nigerian public sector perform

severely low to its counterparts in Britain, United

State of America, and other developed countries.

Perhaps the problems lies with the public servants

that manage these public institutions”.

Adebayo (2004:168) further traces the problems on the conflict

between the generalist administrators and the professional specialists,

inadequate training, faculty and frequent postings, incompetent superior,

lack of clear objectives lack of unhelpful political direction; colonial

mentality towards public service, poor accountability and lack of

transparency in the public services as well as the massive purge of the public

services 1975. Consequently, the situation of the Nigerian public service has

attracted many attentions, it is in this view that Adebayo (2004:223) asserted

that “in the new millennium, it is necessary to look back on the past to see

the lessons we can learn from it which will assist in preparing for the tasks

of new public service in Nigeria”

In other words, the Udoji Commission‟s Report in 1972 guideline

recommendations for modern and result- oriented public service in Nigeria

stated under its page 112 as follow:

“Our main message in this report is the need for

introducing a new style public service, this is a

service capable of meeting the challenge of

development…. There is need for a new conception

of management, providing a more production-or

results oriented approach to public service…. Such

a public service will need to recruit and train

specialized personnel and use scientific knowledge

to a much greater extent than at present, it must

draw upon the resources of research and

experience of the private sector both in Nigeria

and abroad…. the new public service will need to

manage its human resources in such a way as to

motivate them to achieve defined goals more

effectively”.

With all these laudable concepts in the recommendation of Udoji

Commission, one would be force to ask why was it that the Nigerian public

service was unable to fulfill the goals and objectives and it became

necessary to setup another commission in 1988-Dotun Phillips Commission

–culminating in Decree No. 43 of 1988.

A number of reasons can be adduced for the failure of the public

service to produce the desired result in the socio-economic development of

Nigeria. Categorically, Adebayo (2004:226) noted two basic reasons for the

frequent bureaucratic failure in Nigeria. These are Human feelings and

institutional constraints. Although his observations are still in line with

observations made by Oransaye (1984:40), Balogun (1978:33), Aluko

(1968:45) and

To Adebayo, human feeling covers socio-cultural attitudes, such a

corruption, laxity, induced inefficiency, indiscipline, etc, while the

institutional constraints covers weak or perverse political direction,

instability of government/political system.

Institutional Constraints:-

(i) Faculty recruitment of employees:- One of the banes of Nigerian public

service is the recruitment of mediocre or totally unsuitable candidates in

preference to candidates of high merit. The reasons for this ugly situation

can be traced directly to nepotism in the public service Oransaye

(1984:43). Corruption plays only a little part and is generally prevalent in

the recruitment of very junior employees like messengers and clerks

Adebayo (2004:226). Much as this situation is reprehensible, it is not the

heart of the matter. The selection of unsuitable candidates, which

undetermined efficiency and lowers performance in the public service,

occur in the recruitment of higher grades of staff. Highly placed

functionaries of these grades of staff. The seed of inefficiency and poor

productivity is germinated in the public service when faculty recruitment

is carried out.

(ii) Faculty and Frequency Postings:- According to Adebayo (2004:228), a

man‟s capability can be best demonstrated in fields most familiar to him

by training and experience. He further argued that when you put a man

on job for which he has no previous experience or background training,

then it is asking too much to expect him to be master exasperating and

self-defeating when you keep shifting such a man from job to job, each

one hardly related to the previous one.

(iii) Inadequate Training:- Admittedly, much progress has been made in the

various public services of Nigeria towards training and staff development

during the post decades, and particularity since the introduction of a

result –oriented approach to public service following the report of the

Public Service Review Commission in 1972 Adebayo (2004). But the

tempo and scale of training still falls far short of normal requirement for

an efficient public service.

(iv) Deterioration in Health:- Adebayo (2004:228) and Oronsaye (1984:48)

have observed that perhaps because of domestic commitments and

responsibilities, most Nigerian public officers whose health has

deteriorated to the point of permanent impairment of efficiency, never

learn to retire gracefully from public offices.

(v) Incompetent Superior:- Under this constraint, Adebeyo (2004:229)

observed that it sometimes happens that by some fluke or deficiency in

the system, some incompetent officials climb to a high point of seniority,

at which they have to direct and supervise the work of junior officials.

Lack of adequate managerial skills, experience and technical know-how

of the superior officials to inefficiency and poor service delivery.

(vi) Lack of Clear Objectives:- One greater malady which afflicts most of

the work in the public service is the complete absence of goals or

objectives forming targets for public officers to pursue. Elekwe (1994:33)

stressed the effect of lack of clear objective when he remarked that most

public sector organizations in Nigeria do not even know the goals they

are established to achieve. Under this scenario, it is difficult to expect

tangible public service efficiency and effectiveness.

(vii) Conflict Between Administrators and Professional Officers:- The

situation which the Public Service Review Commission in Nigeria saw

and described in 1974 is still very much the same today (Adebayo,

2004:230). He observed that in paragraph 112 of its Report, the

Commission Observed that as between the administrators and

professionals the relationship is one of acrimony and antagonism in a

conflict rather than partnership in an enterprise with resultant lack of the

teamwork necessary in modern organization.

Political Constraints:-

(i) Undue Advancement: Political development has in Nigeria during the

past twelve years inadvertently brought in its wake a lowering of

efficiency in the public service Adebayo (2004:174). First, as he pointed

out, is that there was the creation of states in May 1967 when the existing

four regions were carved into twelve states. Together, with the Federal

government, this political exercise led to the increase of public services

from five to thirteen. Each state had to reproduce, the full paraphernalia

of government- permanent secretaries, Deputy Permanent Secretaries,

Accountant General, Auditor General. General Managers, and other

heads of departments.

(ii) Lack of or Unhelpful Political Direction:- As noted in Adebayo

(2004:176) there are always an unhelpful scenario created by the political

administrators to the specialist administrators (public servants). Its

deleterious effects on the public services are severely one of the major

causes of inefficiency in the public service.

Massive Purge of the Public Service 1975:- According to Okoli and

Onah (2002:187) and Adebayo (2004:176), the exercise was a purely

political decision. It was a blanket political decision taken to cover everyone

in that cadre of the public service, no matter whether there were to be found

among them those who were able, competent, and of transparency, honesty

and integrity. The effect was to leave the services in a state of dismay. The

truth is that public servants no longer see their job security and therefore

device illegal means to enrich themselves before it will be will too late.

Colonial Mentality:- Oransaye (1984:41) stressed that “apologists of

the British colonial administrative system have argued that the British

administrative system that was transferred to Nigeria has certain

administrative value, which are aspects of the protestant work ethic such as

“efficiency” rationality, universalism, collectivity orientation; punctuality,

discipline and integrity which had they been properly internalized by the

successor administration would have more than met the needs of her

developmental goals. But like what Balogun (1978:63) has observed, these

values inherited from colonial administration were distorted leading to what

he prefers to refer to as a kind of institutional breakdown or decay. That the

British tradition was not imbibed might be due, no doubt to the assertion that

bureaucracy like any institution is a reflection of the larger society of which

it is a part, for a system and its behaviour are reciprocal.

As the Udoji Commission found out, social factors constitute further

problems to public bureaucracies in Nigeria especially in areas of ethnic

particularism Oronsaye (1984:49). Unlike the British tradition of dedicated

responsible service to the nation, in Nigeria, family, local and ethnic

loyalties compete with and often take precedence over loyalties to state or

nation. Thus, the Nigeria bureaucracy is characterized by a cankerworm of

sectionalism, and local particularism. The public service is divided into sub-

ethnic groups and it is seen in terms of contest for power and rewards. The

reason for this is not hard to discern, the result of an unequal distribution of

the available scarce economic and political advantages of the society. In

such a situation an individual is made to feel that he cannot go it alone. He is

thus forced to seek security and strength in the primary relationship of

village, clan, or ethnic members. In consequent, organizational members are

loyal to blood relations rather than to formal organization Oronsaye

(1984:44). In most cases goals furnished by the organization are sabotaged

in order to further the interest of ethnic group. Authority is viewed as a

means of consolidating personal and narrow sectional interests. No wonder

there is always a cut-throat competition for a position of authority among

members of different ethnic groups. In order to ensure victory and

consolidate prestige position, authority figures apply particularistic rather

than universalistic criteria in recruitment and in promotion. The ethnic

loyalty also leads to the tendency among the rank- and- file. According to a

Tribunal of Inquiry Report cited in Oronsaye (1984:42-43) observed that

senior staff were reluctant or are of afraid to take disciplinary action against

subordinates either because of the need to retain their support in the “war of

succession” or because the subordinates would be back by higher authority

whom they support.

Adebayo (2004:179) has identified the psychological constraint or

colonial mentality as it affects the efficiency of public service in a different

approach. He stressed that this particular ailment which militates against

efficiency in the public service mainly afflicts the junior workers and is

prevalent among them. The messengers, typists, cleaners, clerks and

labourers- all these categories of workers are to be found malingering or just

loitering. They leave off their work and assemble to chat, eat kolanut, etc.

Sociological and Attitudinal Constraints:-

(i) False Reporting:- This is a phenomenon commonly found when the

public service in Nigeria used the system of confidential reporting. Some

senior officials and head of departments have been known to write untrue

confidential reports on their subordinates, merits and virtues that they did

not possess.

2.1.10 Gap in the Existing Literature

Explicitly, the study has unveiled some salient literature that have

some degree of relevance to the subject matter under study. These literature

have concentrated mainly on general notes on the Nigerian civil service with

little emphasis on the Enugu state civil service in particular. This study

therefore intends to cover this gap by examining in detail the effects of

Enugu State SEEDS programmes for the public services in Enugu State.

2.2 Hypotheses

The following hypotheses have been formulated to guide this

study:

H1: The extent of efficiency and effectiveness in the implementation of

Enugu state SEEDS determines its effects in the development of Enugu state

civil service.

H2: SEEDS has positive effects in the operational effectiveness and

efficiency of the public service in Enugu state.

H3: High incidence of bureaucratic corruption and poor service delivery are

among key constraints militating against the effort of SEEDS programmes

on the development of public service in Enugu state.

2.3 Operationalization of Key Concepts

The clarifications of the following key concepts capture their

operationlization or technical usage in the research work. These concepts

will facilities the understanding of the content of this study. Thus these

concepts are:

Development Programme: Ordinarily development is a multifarious

concept but in this study, the word “development is taken to be a process of

building up skills. It can be explained further operationally, as a process of

making something transform form a relatively less sophiscated to a more

matured, more experienced, and less dependent state. Thus, development

programme is conceived towards an organizational efforts to enable

employees realize their potentials in full, or to assist them attain high level

capacity and means towards self fulfillment.

Bureaucratic Corruption:- Bureaucratic corruption is seen as any form of

inducement or gratification “given and taken” in order to do some official

work or assignment which ought to be done as a normal routine, or to jump

some official protocols or bend some rules and regulations.

Effectiveness:- In a generic sense, effect means results or outcome. In this

study, effectiveness is defined as the degree to which an organization

realizes its goals. The effectiveness of an organization in this study implies

the degree to which it attains it goals or the ability of the system as a whole

to effect intended result. Indicators, measures and/or determinants of

effectiveness are: productivity, stability, morale, turnover rate, degree of

integration, maximizations of individual potentialities, values contributed to

the society, etc.

Efficiency:- Efficiency according to Adebayo (2004:68) connotes fitness

or power to accomplish or success in accomplishing, the purpose intended;

adequate power effectiveness, and efficacy. Efficiency refers to an input –

output relationship; that is maximum work achieved for a minimum input of

energy or resources. It is a notion of optimization whereby maximum

satisfaction is obtained for a given outlay of resources.

Poor Service Delivery:- Poor Service delivery connotes a state of in

efficiency and ineffectiveness in providing social services to the public.

Public Service: Public service is a term used to cover all the

organizations, institutions or bodies owned by the government. It also

includes all the employees of government that work to execute its policies.

2.4 Methodology

This sub-section of the research deals with the ways, procedures or

steps followed in carrying out the research study. Methodology according to

(Odo 1999:40) is the authority base for a research. The following steps were

taken in carrying out this research study.

Research Design

Research design according to Nwana, (1985:34) relates to the general

approach adopted in executing a study. This research is a descriptive study

designed to investigate into the topic; assessing the effects of the State

Economic Empowerment and Development Strategy- (SEEDS) in the

development of Public Service in Enugu state. As a fact- finding study, this

study is narrowed down to the Enugu State SEEDS reform programmes in

the Ministry of Education and Finance from 1999-2007. This period was

considered essential in order to develop a holistic analysis on SEEDS reform

programmes on Enugu State Public Service during Ex-Governor

Chimaroke‟s administration.

Sources of Data Collection

In the process of carrying out this study, the data used were collected

from two major sources. These sources include the primary and secondary

sources.

Primary Sources of Data

The primary sources of data used for the analysis of the study are

those collected from the respondents through the designed questionnaire and

interview. The questionnaires were administered by the researcher, we

conducted oral interview on some top management employees in the

Ministry of Education and Finance Enugu state. This was done to elicit

further information from them concerning the issue under study.

Secondary Sources of Data

The secondary data for this study were collected from already written

books both published and unpublished that were found to be relevant for this

study. These already written works include text books, journals, magazines,

Newspaper, Government documents, and past research work by students and

research institutions.

Population of the Study

The term “population” has been defined by Odo (1992:40) as “the

entire number of people, objects events and things that all have one or more

characteristics of interest to a study”. The population of this study is drawn

from the Enugu State Public Service but particularly from the Ministry of

Education and Finance. However, the information given by the Personnel/

Human Resources Development Units of the Ministry of Education and

Finance show that there are about 480 civil servants working under the two

Ministries as at January 2010.

Sample of Study

Samples are normally used in studies that involve large population.

The reasons for using sample include; the desire to adequately manipulate

the enormous population in order to avoid errors due to the calculation of

large numbers and the desire to reduce the cost of producing the

questionnaires that will cover the entire population.

Odo (1992:47) defines a research sample “as a process of selecting a

proportion of the population considered adequate to represent all existing

characteristics within the target population and to any other population

having similar characteristics with the target population”. To draw a sample

size, the researcher selected 120 respondents each from the two (2)

Ministries sampled out for this study. These respondents were drawn from

the management, senior and junior staff of the Ministry. Therefore, the target

sample population of study is drawn as show below:

Target Population of the Study

Selected Ministries Population Sample

Ministry of Finance 120

Ministry of Education 120

Total 240

Source: Research Data 2010.

Sampling Procedure

The sample technique or procedure used for the study is the simple

Random Sampling (SRS) in selecting the respondents that would answer the

questionnaires. According to Odo (1992:51) simple random sampling

assumes all the elements in the population to be studied or identified, having

all the characteristics, symmetrical, same and similar”. In applying simple

random sampling, the research randomly selected the respondents to give

equal opportunity to all the staff of the ministries sampled out for the study.

Data Gathering Instrument

Questionnaire is the main data gathering instrument adopted in this

study. Questionnaires are sets of questions and answers which can be mailed

to respondents by post or carried by field worker or enumerator and

researchers for their responses. Odo (1992:41) defines questionnaire as a

“series of written questions or a responsitory and/or a devise which the

respondents written opinions are sought that test the research questions or

answers to research questions and hypotheses”.

In this study, the close-ended and open ended questions were adopted

to obtain information from the respondents. The questions posed were

related to the topic under the study. Options were provided to the

respondents to select from the close-ended questions while the Likert type of

questions were also included to enable the respondents to state areas of

desirability and undesirability in the open-ended part of the questionnaire.

Reliability and Validity of Instrument

According to Obasi (2000:103); Black and Champman and Nachinias

and Nachimas (1981), the success of any research lies to a large extent on

the dependability of the data employed in analysis. This then raises the

question of validity and reliability.

Validity as the name implies is the appropriateness of an instrument in

measuring what is intended to measure. According to (Odo, 1992:50)

validity is the extent to which a test measures what it is supposed to

measure. Validity therefore, occurs when a careful attempt has been made to

ensure that an instrument adopted measures achieve the desired results by

applying the theoretical knowledge in the filed about what is being studied

and by convincing oneself common sensically, that the items, in the

instrument has been logically validated Obasi (2000:104).

In validating our instruments for data collection, we shall be

concerned with establishing their content validity. We are doing this first, to

ensure that they measure what they are expected to measure and more

importantly, because content validity comprises of face validity, predictive

and concurrent validity, construed validity or criterion related or empirical

validity Black and Chempion (1976:91). We shall therefore, ensure that the

questionnaire we shall use will be appropriately structured; well worded and

covers a good representation of the Enugu state civil servants.

We shall ensure validity by insisting that our empirical measure

adequately reflects the real meaning of the concept under consideration. We

shall employ content or face validity method which will enable us to ensure

that the instrument we shall use will be valid. To ensure this, we must ensure

that the questions in our instruments are good ones. We must equally ensure

that they are logically and relevantly measuring what the instruments are set

out to measure.

Reliability, on the other hand, refers to the ability of an instrument to

produce the same results consistently over some time when applied to the

same sample, Good and Hart (1952:86). The reliability of our instruments

will be assured by our consistency in our question and interview models.

According to Odoh (1992:54) reliability means consistency and it is the

consistency of the test in measuring whatever it purports to measure. We

shall ensure reliability of our instruments by ensuring that the question we

shall pose in both questionnaire and personal interview shall be in simple,

good, precise and understandable form to the respondents.

To ensure reliability, we shall use internal consistency method

whereby cross-checking questions are built into the questionnaire and oral

interview. We shall further ensure reliability by cross- checking our

information against many sources and by ensuring that facts and figures

collected form various sources earlier stated shall not only be accurate and

authentic but would remain same if the collection is repeated again and

again.

In addition to the above measures aimed at ensuring validity and

reliability of the study, we shall employ external criterion to check how

correct the findings of a particular instruments are. We shall do this by

comparing the result with existing knowledge as well as our findings from

field work, questionnaire, oral interview, participant observation and content

analysis. With the above processes, the validity and reliability of the

instruments as well as the study will be assured.

Method of Data Analysis

In analyzing the raw collected data, the researcher will be guided by

the objectives of the study, the research questions and research hypotheses

formulated. Also items on the questionnaire will be spread out in order to

capture the qualitative and quantitative responses expected from the

respondents.

The study adopts the use of tables, pie chart, chi-square statistical

measurement and content analysis. However, in presenting the tabulated

data, the use of simple percentage will be adopted. It is worthy to mention

that the simple percentage will enable us to access the proportional

percentages of the respondents‟ opinions in the questions asked while the

chi-square statistical method will enable us test the variables in our research

hypothetical statements. Hence, the researcher will be guided by the

following formulas:

For the calculation of simple percentage, we shall use

n x 100

N 1

Where, n = Number of the Respondents opinions in a particular options

N = Total number of the Respondents

100 = Percentage constant factor 100

1

For the calculation of chi-square, we shall use the formula;

X2 = Oij - Eij

Eji

Where; Oij = number observed in the ith row and jth column

Eij = the number expected in the cell under the null hypothesis and

is obtained by:

Eij = Li x Mj

N

Where Li = Marginal row total

Mj = Marginal column total

N = Overall total or number of observations.

The chi- square utilizes what is called the degree of freedom and

specified test criteria. The degree of freedom (df) is simple:

DF = (r -1) (c -1)

Where, r = Number of rows

c = Number of columns.

2.5 Theoretical Framework

It is a tradition in the social sciences to adopt existing paradigms or

theories to enable us articulate our analysis Obuoforibe (2002:27). Theories

are simply the foundations upon explanations or predictions can be made. In

many ways, a theory is a guide to action and an aid in search for the essential

meaning of occurrence. Haralambos (1980:521) defined a theory as a set of

ideas which provides explanation for something”. An elaborate definition is

however given by Kerlinger (1973:8). He defines theory as “set of

interrelated constructs (concepts), definitions, and propositions that present a

systematic view of phenomena by specifying relations among variables with

the purpose of explaining and predicting the phenomena”.

In the study, we shall adopt the public management theory. The public

management theory represents an effort to introduce business methods into

the conduct of public sector organizations. According to Ezeani (2005:82),

the origin of the theory or approach can be traced largely to the civil service

reform movement of the late 19th century in the United State of America.

According to the reformers, “what civil service reform demands is that the

business part of the government shall be carried on in a sound business- like

manner” Schurzi (1994:3). Therefore, implicit in the Public Management

theory, is that public sector organizations should aim at maximization of

effectiveness, efficiency and economy.

The advocates of the public management theory to public sector

organizations include Wilson (1976:481-506); Taylor (1917:112); White

(1926:201); Storing (1965:38-51); among others. Wilson (1976:3-9) for

instance, articulated three core values of the public management theory to

public services or public sector organizations. “It is the object of

administrative study to discover, first, what government can properly and

successfully do, and, secondly, how it can do these proper things with the

utmost possible efficiency and at the least possible cost either of money or of

energy”. Similarly, white quoted in Storing (1965:40) asserts that “the study

of public service should start from the base of management rather than the

foundation of law, and is, therefore, more absorbed in the affairs of the

America Management Association than in the decisions of the courts”.

Furthermore, Gulick and Urwick (1937:172) noted that Taylor in the

Scientific Management movement contributed immensely to the growth and

strengthening of the management of public organizations. Taylor sought to

promote the values of efficiency and economy in production, rationality in

work procedure and productivity and profit. Because of its emphasis on

efficiency, the advocates or protagonists of the public management theory

contended that politics could not enter “the structure of administration

without producing in efficiency” Gulick and Urwick (1937:192-195). Thus,

they advocated for the non-interference or meddling of politics in the affairs

of administration of public sector organization or public service.

It is important to mention that the Public Management theory

promotes professionalism in the public service along the lines of Max

Weber‟s ideal-type bureaucracy Rosenbloom (1983:220).

In summary, the main tenets of the public management theory are

summarized below:

- Public sector organizations should be managed in a sound business-

like manner. This means that in managing public bureaucracies,

government can introduce some measures such as privatization and

commercialization, criterion of efficiency, and effectiveness in the

management of public sector organizations for optimum achievement

of goals,

- Public sector services should be carried out on the basis of cost benefit

analysis in order to minimize cost either of money or of energy.

- Management of public sector organizations should uphold the

principles of rationality, in work place procedure as well as

productivity and profit of organizations in relation to resource input.

Application of the Theory to the Study

The public management theory has so many significant justifications

to the problem under investigation or this research work.

However, the central message of the theoretical projection of public

management theory is that public service or public sector organizations

should adopt or introduce business methods into the conduct of their

activities and efforts to achieve organizational goals. Therefore in order to

explicate the variables that form the basis of this research topic, one needs to

state that SEEDS reforms on civil service is better understood within the

theoretical postulations of the public management theory.

Explicitly, SEEDS reforms on the development of public service have

followed sequentially the descriptions of the public management theory.

Empirically, the emphasis on changing the way the government does its

things, reforming the bureaucracy, downsizing the public sector services,

anti-corruption campaign, and encouraging public- private sector partnership

are some of the areas that can be strategically reformed to achieve

responsive and efficient public service. In other words, reinventing the

ideological tenet in the Public Management theory, SEEDS reforms on

public service aimed at strengthening the efficiency and effectiveness of the

Nigerian civil service through its programmes. This perhaps induced

Nwezeh (2005:1-2) to assert that:

Government objective under the NEEDS and

SEEDS reforms is clear: the people of this country

require the delivery of high quality services so as

to ensure sustained improvement in the quality of

their lives. Civil service reforms are not just about

slashing jobs but to reposition the service in order

to achieve greater efficiency and effectiveness in

meeting the complex challenges of globalization in

a knowledge based environment.

Therefore, in order to invigorate the civil service, the idea of

surgically divorce the system (civil service) of its lethargy was conceived by

the government and this involves identifying the problems of the Nigerian

civil service as well as introducing programmes towards solving the

problems. For instance, Akpederi (2005:22) and Bagshaw (2005:13)

observed that the introduction of Anti-corruption and Due Process Act is in

recognition of the behavioural illness of the Nigerian civil service induced

by prebendalism of the bureaucrats and other public officials. In addition or

relation to the work being done under the Due Process and Procurement

Reforms, the Ministry of Finance both at the Federal and state level has

launched a new process called Running Operational Reviews (RORs)

designed to ensure that there is more transparent, efficient and effective use

of resources in major government activities. In this regard, according to the

President, Chief Olusegun Obasanjo (2003:3):

RORs … will allow for operational, logistical and

financial reviews and assessments for major

activities as they are being implemented so that

lessons learned can be fed back “just in time” to

improve the operations of that particular activity.

Lessons learned can also be fed back to other

similar activities thereby enhancing their

effectiveness.

On the area of professionalism and downsizing the public service,

they argued that it is a mechanism introduced to rationalize the civil service

in order to be goal- oriented. To them, the Performance Improvement

Bureau (PIB) is instituted to make the service delivery more efficient. For

instance, in Enugu state under the Ministry of Education, there is new

programme on Public- Private Partnership Management (PPPM) in the

educational sector to ensure efficient performance of the sector. This

programme targets to improve the educational programmes in secondary and

primary schools as well as training of teachers to upgrade their skills in

teaching. In other words, to follow the theoretical directive of the Public

management theory, the reform programme focuses on specific measures to

curb corruption, improve transparency, and accountability in the conduct of

government business. As a solution to this problem of corruption, SEEDS

introduced the Budget Monitoring and Price Intelligence Unit (BMPIU) at

the state level to minimize corruption in managing public funds.

From the foregoing, it is believed that the efficient reforming of civil

service in Nigeria can achieve its desired results if the management of public

sector organization is functionally- structured along the line of the public

management theory.

Short Comings/Limitations of the Public Management Theory

Theories no matter how apparently neutral they may appear, always

reflect the viewpoints or value perceptions of their protagonists. In other

words, theories seek to present the worldview of the theorists. This means

that reality for these theories is nothing but the preference of the proponents

of these theories.

Given this scenario, the public sector management theory has its

limitations in the face of empirical assessment with the Nigerian context.

Public management theory is silent over the criteria for achieving efficiency

and effectiveness in public service. The theory did not tell us the

mechanisms or processes to be followed by public sector organizations in

carrying-out their businesses in a private sector manner. On the other hand,

the theory failed to recognize that public sector service represents the

welfare state of the government and which cannot be operated or managed

as private sector service. This is because public service or pubic sector

organizations exist to render or provide some essential services to the public

and often the criterion of efficiency is difficult to apply in measuring the

performance of these organizations following their nature of operations.

However, despite the above limitations of public management theory

and considering the subject matter under investigation, the theory appears to

be the best in explaining the current civil service reform in Nigeria. Again,

the theory has enabled us to examine and understand the pattern of

management which SEEDS civil service reform projects for Enugu state

towards attaining efficient and goal-oriented public service.

CHAPTER THREE

BACKGROUND INFORMATION OF ENUGU STATE AND THE

MINIISTRIES OF EDUCATION AND FINANCE

3.1 The Geographical Location of Enugu State

Enugu state was carved out of Anambra state as one of the new state

created by the Babangida administration on August 27, 1991. Enugu sate

occupies a surface of about 8,00 sq.km with the West African tropical rain

forest region between latitudes 5.550 and 7.10

0 North and longitude 6.50

0

and 7.550 East. It is bounded in the East by Ebonyi state, in the West by

Anambra state, in the South by Abia and Imo state respectively.

The state lies partly within the tropical rain forest belt to the south. Its

physical features and vegetation change gradually in the northeastern

direction from the tropical rain forest to open woodland, and savannah land

as it approaches its northern boundary.

Enugu state derives it name from the capital city, Enugu. The city of

Enugu evolved following the discovery of coal in 1990 in Enugu Ngwo, a

village at the top Udi Hills. Enugu as a town has had a chequered history.

Starting from it change over from Calabar as the headquarters of the eastern

province. It has served as the seat of government for eastern Nigeria. It has

also served as political capital for

the defunct three- year old republic of Biafra, East central state, and the

former Anambra state until August 26, 1991.

3.2 People Culture and Religious Beliefs of Enugu State

Enugu state is ethnically homogenous, with majority of the inhabitants

being of Igbo origin. Igbo is thus the predominant language, although with a

variety of dialects. However, pockets of communities around the

Benue/Kogi border speak Idoma and Igala languages. In addition, English is

also widely spoken as a second language.

Culturally, the people excel in such cultural industries as mental

works, cloth weaving, woodcarving, ceramics, basketry, and mat weaving.

There are many cultural features common to various parts of the state.

Festivals occupy a significant place in the people‟s culture. The birth a

child is graced with an outing ceremony and death even with its sorrows, is

marked with drumming and dancing. Masquerades are feature prominently

in the state. Masquerades are known by different names: Odo, Oriokpa,

Omaba, Iga, Agaba, Mmanwu, Adamma, etc, names that are particular to

each of the cultural zones.

Masquerades also operate as or serve as a police force where social

functions are going on. During local political gatherings, one or two

masquerades are usually invited to keep peace and order. The presence of

masquerades is already a warning to defaulters to be careful and to mind

themselves. In the time of colonial masters, masquerades came to entertain

the audience and maintain peace and order whenever such masters visited in

any part of the state.

The new yam festival is another notable characteristic of the culture of

the people of Enugu state. The new yam festival is a ceremony which marks

the end of the farming season.

The religious beliefs of the people of Enugu state are mainly:

traditionalism, Christianity and few Moslem in the state.

It is also important to state that due to cultural dynamism certain

traditional practices are fast being replaced by modern idea or rather by

western culture.

3.3 Population Distribution of Enugu State

According to the Federal Office of Statistics, figures from the 1991

National Census, the population was 2.1 million in 1991 at a growth rate of

2.83% the estimated population of the state is about 2.9 million in 2003. If

population growth continues at this rate, the estimated population by 2009 is

about 3.5 million. Its population density of about 360 persons per square

kilometer is more than twice the mean national population density of 96

persons per square kilometer.

According to the 1991 census, the population is relatively young, with

about 45% under 15 years, 17% under 30 years and 4% over 65 years of age.

According to the census figure, the state maintains about 15% of the national

population and about 47% of the population is male while 53% is female.

Women of child bearing age (15-49) account for about 40% of the

population.

The age distribution of the population of Enugu state is given by the

Poverty Reduction Strategy of the Enugu State Economic Empowerment and

Development Strategy (SEEDS) 2004-2009 is shown below.

Age Distribution of Population

Fig. 3.1 5%

666666

a a 0

32% 45%

Source: Enugu State Economic Empowerment and Development

Strategy Report 2007.

In Enugu state, most of the working population (78%) is self

employed, (86% in rural area and 55% in urban areas). Agriculture accounts

for 55% of the total workforce and 70% in rural areas. The proportions of

women in agriculture at 61% are higher than that of men (47%). Trade is the

next most important activity (25% of females and 14% of males), followed

by services (8% of females and 14% of males) and education and health

workers (5% of both males and females). The figures for 1998 and 2007

Civil Service Commission Suggest that there are about 9,800 civil servants

4,700 employees in government parastatals, 9,600 local government

employees and 17,700 teachers in the state. Thus, the government employs

about 5% of the working- age population.

60 Years

&above

25 – 59

Years

0 – 14

Years

15

Years

18%

Fig 3.2

Others

Agriculture

Trade

Services

Construction

Education/health

Others

34%

Agriculture

Ser

vic

es

Education/health

Trad

e

Others

Construction

70%

7%

3%

1%

5%

Trade

Services

Others

Agriculture

Education/hea

l

Construction

3%

11%

11%

12%

29%

Trade

Services

Construction

Agriculture

Education/health

Occupational Distribution (Rural and Urban Area)

Source: Enugu State Economic Empowerment and Development Strategy

(SEEDS)

3.4 Political Life of Enugu State People

Politically, Enugu state people are active in politics and that was why

the state was maintained as the former eastern region capital.

The state has 17 Local Government Areas (L.G.As). An additional 39

were created in 2003, but have not yet been given constitutional recognition

and so remain development centres. These 17 Local Government Area are:

Awgu, Ani- nri, Enugu East, Enugu North, Enugu South, Ezeagu, Igbo Etiti,

Igbo- Eze North, Igbo- Eze South, Isi- uzo, Nkanu Wast, Nkanu East,

Nsukka, Oji River, Udenu, Udi and Uzo- Uwani Local Government

Councils. About 59% of the population lives in the rural areas. The three (3)

Local Government Areas (LGAs) of Enugu municipality together account

for 22% of the population, and Nsukka, a rapidly growing university town, a

further 10% of the population. The other 13 LGs mainly rural, with widely

varying population densities between 60 persons per square kilometer for

Uzo-Uwani, in the West of the per square kilometer for the Igbo-Eze in the

North. Besides the official governments of committee and local government

areas, traditional structures are very active in rural life and help to organize

the many aspects of development local level. The traditional institutions

have evolved into more formal settings with elected leaders, written

constitutions, administrative structures, and officials. Each traditional

institution has its own area of priority attention, so that together they cover

wide areas of community interests and projects. The traditional rulers are

generally regarded as the father of the community. In conjunction with his

cabinet they are charged with the custody of the community‟s cultural

heritage and traditional practices. They do not determine circular or political

issues but are usually consulted in matters that concern the community. The

members of the traditional cabinet represent the various clans in the

community.

In socio-economic and political matters, the town union is typically

the most prominent of all community based organization (CBOs) as it

represents the collective will and aspirations of the community. It also

provides an umbrella organization for the control and co-ordination of the

various segments of the area as well as other community –based

organizations. The Town Union liases with other CBOs such as the women‟s

organizations, Youths and age grade associations.

The women‟s organizations are either secular or faith- based, with

essentially the same women in both categories. The women‟s groups tend to

be the best organizations, even though they tend to be cut-off from the main

stream of socio-economic and political life. The youth and age-grade

associations are the main agents of social control and the community

security apparatus. They enforce compliance with community policies and

programmes and tend to be defenders of the economic and political

programmes of the community.

SOME GOVERNMENT OWNED ENTERPRISES LOCATED IN

ENUGU STATE

The structure of the economy of any society can be assessed from the

availability of resources endowment, productive structures and

organisational system of the society in question. In other words, government

(public enterprises) located in Enugu State would be of immense assistance

in assessing the information on economic and commercial activities of the

state.These enterprises ranges from federal public service and parastatals to

state public service and parastatals. Some of the Federal parastatals in the

state are as follows:

Nigerian Airport Authority;

Nigeria Telecommunication Company (NITEL)

Nigeria Railway Corporation (Eastern District)

Nigeria Postal Service (NIPOST)

Nigeria Television Authority (NTA)

Federal Road Safety Commission

Federal Radio Corporation of Nigeria

National Anti-quities Commission

STATE – PARASTATALS:-

Enugu State Broadcasting Service (ESBS)

Enugu State Housing Development Corporation

Enugu State Water Corporation

Enugu State Sports Council

Adarice Production Company Limited, Adani

Presidential Hotel

Rural Electrification Board

Enugu State Environmental Sanitation (ESES)

Enugu State Library Board

Sunrise Flourmills Emene

Enugu State Lotto Commission

Enugu State Arts Council

Enugu State Civil Service Commission

Enugu State Hospitals Management Board

Anambra State Motor Manufacturing Company (ANAMMCO)

Enugu State Marketing Company

Enugu State Tourism Board

Premier Cashew Industry, Oghe

United Plan Products Limited in Ugwoba

Aluminum Products Factory, Ohebe-Din, Igbo Etiti

Land Use and Allocation Committee

Ikenga Hostels Limited

Anambra/ Enugu Vegetable Oil Products Ltd

Nike Lake Resort Hotel Ltd

Rangers Management Corporation

Rural Development Authority

Enugu State Cultural Commission

Institutions of Higher Learning in Enugu State

Enugu State University of Technology (ESUT)

Institute of Management and Technology (IMT)

Enugu State College of Education Campus 2

Federal College of Education, Eha-Amulu Isi Uzo

University of Nigeria, Nsukka

3.5 Economic/Commercial Activities of Enugu State People

Enugu state is blessed with abundant mineral and other natural

resources. It has plentiful rich agricultural land in which virtually very

tropical crop can thrive. Agriculture is its major industrial mainstay. Farmers

in the state produce a wide variety of staple crops, the major one being

cassava, which is cultivated by 87% of rural households, but also include

yam, maize, vegetables and fruits. Rice is the special crop of some of the

zones, while cash crops such as oil palms and cashew can be found across

the state in general. Approximately, 48% of the state‟s land areas is currently

under cultivation, with 54% devoted for forest reserves. The bulk of small-

scale farmers are women, who do not typically own land, but husbands or

adult sons. Cassava processing into garri is the most common of all food

processing activities by women in the rural areas. In the northern part of the

state, the processing of palm and palm kernel nuts is also widely undertaken

by women. Though, agricultural production is very low in the state due to

low application of mechanized farming system by farmers.

The state‟s agricultural policy aims at harnessing and improving its

potentials to achieve self- sufficiency, in food and raw materials to achieve

self- sufficiency in food and raw materials productions. Thus, the

government provides agro-based and extension services such as tractor

liming service, distribution of fertilizer and high yield seedlings,

insecticides, technical support service and credit facilities at reduced cost to

farmers. The State Ministry of Agriculture and Natural Resources and

Agricultural Development Project Scheme execute the state government‟s

agriculture policy.

There is emphasis on industrialization of the rural areas, most of

which now have been electrified through the State Rural Electrification

Programme. Project files to guide investors on establishment of small and

medium scale industries are obtainable from the development of commerce

and industry Secretariat, Enugu.

An international trade fair takes place in Enugu annually. At each fair,

prospective investors, local and foreign, make effective business contracts

enabled by the facilities provided by the state government. Producers and

manufacturers that wish to explore new markets and foster better

understanding with their customers also make contacts.

Tourism is another fast growing economy sector in the state. The state

is endowed with some tourist attractions such as:

The Modern Anusement Park (Polo Park) with its unique facilities;

An Art Gallery within the complex of I.M.T Campus III Okpara

Avenue Enugu;

The Enugu- State Zoological Garden;

National Archive and others all situated within close proximity to each

other.

3.6 Educational Institutions in Enugu State

Enugu state has about 2,050 primary schools and 900 secondary

schools of both private and public ownership. Apart from the above, there

are tertiary institutions both Federal and state owned located within the state

such as:

University of Nigeria, Nsukka and Enugu campuses;

Enugu State University of Science and Technology (ESUT).

The Institute of Management and Technology (I.M.T). In addition,

there is a newly established Enugu State College of Education at campus

two Polo Park Enugu.

3.7 Organisatinal Structure of Ministry of Education Enugu State

Fig 3.2

Branches Branches Braanches Branches

Branches Branches Branches Branches

Source: Office of the Commissioner, Ministry of Education, Enugu

State.

Hon Commissioner

Internal

Auditor

Permanent Secretary

Admin

Dept

Finance

Dept

Planning, Research

and statistics

Dept

Schools

Dept

PRO

Dept

Inspectorate Dept

Library and ICT

Dept Educational

Services Dept

Higher and

Technical

Education Dept

Further Information on the Organizational Structure of Ministry of

Education, Enugu State

A critical feature of a formal organization is the organization chart,

sometimes referred to as an organorgram. An organization chart is a visual

device that shows the various departments in an organization and how they

relate to one another. As pointed out by Nwachukwu (1988) cited in Onah

(2005:42), the organizational chart helps the employees, the management

and other stakeholders to see at a glance, the division of responsibility and

the lines of authority. Another major advantage of an organization chart is

that it helps in studying how to modify or improve the relationships and

areas of responsibilities within the organizational structure. Although the

existence of organization chart according to Onah (2005:42), is not

indispensable to the functioning of an organization, its presence gives

evidence of a thoughtful planned structure.

The Commissioner

At the apex of the State Ministry is the Commissioner, who is a

political head. The Commissioner, apart from laying the broad policy

guidelines also supervises the activities of his subordinates in the Ministry.

The Commissioner takes credit for the success of his Ministry, and blame for

the failure likewise. Failure on the part of the Commissioner might cause

him his job. He has, therefore, to ensrue that the civil servants under his

Ministry conform to the set of rules, regulations, and procedures of the

Ministry are maintained.

The Permanent Secretary

The next in the hierarchy after the Commissioner, is the Permanent

Secretary, who is the tennical/ professional or a career civil servant head of

the Ministry. The Parmenent Secretary is responsible for the day-to-day

running or administration of the affirs of the Ministry. He is answerable to

the Commissioner and also advices the Commissioner as the case may be, on

a regular basis and provides him with documents and information, which he

requires for making new policies and regulations about his Ministry, and for

answering questions about his Ministry affaris at the State Council meetings

with the Governor, or in any other meeting with the Minister or in any other

pubic discussion.

Unlike, the Commissioner who by virtue of being a political appointee, can

easily be sacked by the Governor for poor performance. A Permanent

Secretary is a career civil servant, and therefore, cannot be remove from

office easily, without following the due process. However, as a punitive

measure for inefficiency and poor performance, he may be transferred to less

important jobs.

The Adminstrative Department

This is the centre of all activities as well as an indispensable unit of

any organization. At the head of the department is the Director or Head of

Adminsitration. The sections making up this department include the

following: Transport and Stores, Management and Training, Records and

Discipline, Appointment and Promotion and Registry. These five sections

are headed by supervisors and divisional officers who work towards the

corporate goals of the Ministry.

The Finance and Accounts Department

The accounts department is usually headed by a qualified accountant

also known as the Director of Finance and Accounts Department. This

department is responsible for all the financial transactions which include:

accounting, revenue collection, control and disbursement of funds. The

sections making up this department in the Ministry of Educaton, Enugu state

include: Revenue Branch, Accounts Branch, Budget & Budget Contorl,

Banking Section, Cash office, Pay Roll and Reconciliation.

Planning, Research and Statistics Department:-

This section is headed by the Director or Head of Planning, Research

and Statistics. This department is responsible for all the planning activity,

research endeavours and statistical activities in the Ministry of Education,

Enugu. The deparment is divided as follows: Planning Division, and

Research and Statistics Division. Under the Planning Division comes the

Plan, Programme and Project Branch, Monitoring and Evaluation branch and

Tenders Branch. On the other hand, the Research and Statistics Division has

the following branch: Statistics Branch, Research Branch, Records Branch,

Schools Census and other sections, namely; Internal Stistics Section,

Sectoral Research Section, Computer Services and EMIS Section, and

Operations, Organizational and Management Research Efficiency Section.

School Department:- This department oversees everything concerning

school welfare and programmes in Enugu State. The department is divided

into the following sub- units: Physical and Health Education Division and

Schools Division. Under the Phycial and Health, there are other sub-units

namely: Physical Education, Health Education and School and Sports. The

School Division of the departemtn has six sub-units which includes, Private

schools, Investigations, PTA matters, ECC and Nursery, Technology and

French Languages.

Inspectorate Department: Inspectorate department is created to ensure that

the instructional programmes and values of the government as regards to

education are achieved. The department has six zonal Inspectors of

Edcuation, Seventeen (17) Area Inspectors of Education and under theses 17

Inspectors, there are three each in every local government which are grouped

under the following units Secondary schools, Primary schools and Nursery

schools Inspectorate.

Higher and Technical Education Department:- This department oversees

the post secondary programmes of the state education system given in

universities, polytechnics and colleges of education. Under this department,

there are four (4) major branches namely; Certificate Verification Division,

Higher Education Division, Scholarship Division and Technical Vocational

Divisoin.

Library and ICT Department:- It is a well known fact that modern day

education is achieveable through Information and Communication

Technology (ICT). Therefore, the Library and ICT Department functions to

provide quality services to the Ministry of Educaton, Enugu in terms of

information requirement for effective policy making. The department is

divided into two: ICT Services Division and Library Service Division.

Educational Services Deparment: Educational Service Deparment was

carved out from the three deparments mentioned earlier,(i.e. the Schools

Department, Inspectorate Department and Higher and Technical Educatonal

Department. The department has the responsibility of ensuring that quality

service delivery is achieved in the State educational system. The

responsibilities of this department includes, encouraging the use of mother

tongue in their instructional programme, provision and recommendation of

text books in public and private schools, ensure that the medium of

instruction is maintained, regulate and control the operation of public and

private schools in the state as well as ensuring that adequate training

programmes are given to teachers in the primary and secondary schools and

that other essential equipment are provided. The units which make up this

department includes; Special Education Division, Educational Resource

Centre, Technical Support Division, School Service Division, Guidance and

Counselling and HIV AIDS Division, Art and Crafts Division, Store

Division, and Security Division.

Examinations Department:- Examinations department performs the

primary role of supervision and administration of examination codes and

conducts in primary, school and tertiary institutions owned by the Enugu

State Government as well as other private schools in the state. The

department has the following branches; Administration, Finance and

Account Research and Record, Pay Office, Registration, Uniform

Assessment, Selection Examination, Certificate Examination, and Statement

of Results.

3.8 Service Charter of the Ministry of Edcuation, Enugu

From the Service Charter of the Ministry 2006 to date, the following

areas are the major targets:

(i) To increase level of equitable access to education, with particular focus

on disadvantaged and vulanerable groups.

(ii) To perform supervisor and other oversight functions over all State

Universal Basic Education Borad (SUBEB) and Post Primary School

Management Board (PPSMB) to ensure that they comply with

operational codes and standards.

(iii) To generate a general educational statistics needed for proper

educational planning. This is an annual exercise conducted about

February every year.

(iv) Ensure that applications for opening for new school are processed

within two weeks of receipt.

(v) Ensure that every school is inspected at least once a session for

maintenance and improvement of standards.

(vi) Ensure that state level examinations are conducted and are

malpractice free and results released within three months of the conduct

of such examination.

(vii) Development and review of school curriculum. This is done every

three years for secondary schools and six years for primary schools.

(viii) Resource mobilization from the community and private sector to

improve/enhance acess to education

Source: Office of the Commissioner Ministry of Education Enugu State

3.9 Staff Strength and Placement in the Ministry of Education, Enugu

The Enugu State Ministry of Education staff strenght as at the last

count on October, 29, 2009 was 176. It is depicted in the table as follow:

Table 3.1 Staff Strength of Ministry of Education, Enugu

Department Senior Staff Junior Staff Management Total

number

Administration 15 35 6 56

Personanel 4 9 2 15

Accounts 3 6 1 10

Planning Research

Statistics

2 8 2 12

School 3 20 5 28

Inspectorate 7 15 3 25

Higher and

Technical

Education

5 8 2 15

Library and ICT 1 3 1 5

Educatoinal

Services

3 6 1 10

Grand Total 43 110 23 176

Source: Office of the Commissioner Ministry of Education, Enugu

State.

3.10 Educational Enrolment in Enugu State

Table 3.2 Educational Enrolment in Enugu State

Level 2008-2009 2009-2010

Public schools Male Female Total Male Female Total

Pre-primary 32,531 32,634 65,165 33,912 34,019 67,931

Primary 124,333 122,418 246,751 120,065 117,483 237,548

Junior secondary 40,424 54,416 94,840 43,814 55,521 99,335

Private schools Male Female Total Male Female Total

Pre-primary 4,298 4,495 8,793 5,035 4,986 10,021

Primary 8,062 8,001 16,063 8,659 8,688 17,347

Junior secondary 2,911 3,817 6,728 3,205 4,867 8,072

Senior secondary 3,144 4,268 7,412 3,624 5,524 9,148

Total Male Female Total Male Female Total

Pre-primary 36,829 37,129 73,958 38,947 39,005 77,952

Primary 132,395 130,419 262,814 128,724 126,171 254,895

Junior secondary 43,335 58,233 101,568 47,019 60,388 107,407

Senior secondary 36,423 46,632 83,055 40,701 50,129 90,830

Source: Office of the Director Planning, Research and Statistics Ministry of

Education Enugu State.

Note: Private total enrolment levels are in italics to indicate that only

minority of private schools were enumerated in school census.

Table 3.3 Gross and Net Enrolment Rate Enugu State, 2009-2010 (%)

Level Gross enrolment rate Net enrolment rate

Male Female Total Male Female Total

Primary 49 51 50 45 46 45

Junior secondary 36 48 42 31 41 36

Senior secondary 33 38 36 28 35 32

Source: Office of the Director Planning, Research and Statistics

Ministry of Education Enugu State.

As mentioned above, these rates are low because they exclude the majority

of private schools. It is therefore necessary to seek complementary evidence

in a household survey. According to most recent survey, the 2006 Core

Welfare Indicator Questionnaire (CWIQ) the gross enrolment rate was 124%

at the primary level (instead of 50% as suggested in Table 5.2). and 90-95%

at the secondary level (instead of about 40% as suggested in Table 5.2). The

results of the CWIQ survey also show that the share of the private sector in

total enrolment was also higher at all levels (for example, it was 22% in

primary education instead of 71% as suggested by the school

census)although the discrepancy is not so large to account for the above

mentioned difference in enrolment rates. However, it is possible that the

private sector has been growing very fast.

Table 3.4 Nunbmer of Teachers Employed from 1999-2007

School category 1999-2007 2009-till date

Primary schools 6000 2500

Secondary schools 4000 2000

Grand total 10,000 4,500

Source: Office of the Director Planning, Research and Statistics

Ministry of Education Enugu State.

Table 3.5 Number of Schools Built within the implementation of first

phase of Enugu State SEEDS 2004-2009

School Category No. of schools built and renovated

from 2004-2009

No of primary schools built 210

No of primary schools

renovated

586

No of secondary schools

built

28

No of secondary schools

renovated

160

Total 984

Source: Office of the Director Planning, Research and Statistics

Ministry of Education Enugu State.

3.11 Organisational Structure of Ministry of Finance, Enugu State

Source: Office of the Commissioner Ministry of Finance Enugu State.

Commissioner

Permanent Secretary

Accountant General

of Enugu State

Public Relations

Unit

Assistant Accoutnant

General

Director

Admin

Director

Finance

Director

Fiscal Planning

Treasury

Department

Planning,

Research and

statistics

Department

The Commissioner: The Commissioner is also at the apex of State Ministry

of Finance as the political head. He oversees the general affairs of the

Ministry just as we stated in the case of Ministry of Education, Enugu.

The Permanent Secretary: The Permanent Secretary is a career civil

servant who assists the Commissioner in running the administration of the

Ministry. He is as a matter of fact, answerable to the Commissioner and also

advices the Commissioner in policy- making.

The Administration Department:- The administrative activities of the

Ministry are carried out by the department. Major or key units of the

department includes; General Administration, Transport, Security,

Stores,etc.

(i) The General Administration: The General Administration is concerned

with the general aspects of the administration such as mails- incoming and

out- goining correspondence to and from the Ministry, etc. This Section is

headed by an Administrative Officers.

(ii) The Security Unit:- The Security Unit is charged with the responsibility

of ensuring the safety of the property of the Ministry. This section is headed

by the Chief Security Officer, responsible to the Director Administration.

(iii) The Transport Unit:- This unit is concerned with transporting all the

materials needed by the Ministry. It is also responsible for transportation of

workers to and from their workplace. The Unit/Section is headed by a

Transport Officer who reports to the Director Administration. The workers

under this section are drivers, technicians and mechanics.

The Store Unit:- The Store Unit keeps all the items, materials and

properties of the Ministry until when needed. The unit assists in maintenance

of properties to the Ministry and it is headed by a Store keeper.

Public Relation Unit:- This section deals mainly with the public or the

clientele groups of the Ministry. It equally handles other public relations

matters that might affect the image of the Ministry. In most public

organizations in Nigeria, this unit, as the image maker for the entire

organization is usually attached to the Administrative Unit but it is under the

Office of Commissioner of Finance. In Organizations, the unit is always the

mouth- piece of organization as it markets the activities of the organization

to the outside world.

Personnel Welfare Unit:- This Unit is responsible for the staff disposition

of all departments. The department also formulates well developed

employee welfare policies and programmes for civil servants in the Ministry

and ensures their effective implementation.

The Planning, Research and Statistics, and the Finance and Accounts

Department of the Ministry of finance perform the same functions as the

ones discussed under the Ministry of Education. As we stated earlier, the

Planning, Research and Statistics is responsible for all the planning activity,

research, endeavours and statistical activities of the Ministry. On the other

hand, Finance and Accounts Department is charged with the responsibility

of management of the Ministry‟s fund and as function‟s as the bank of the

Ministry.

The Fiscal Planning Department: This department manages all the fiscal

matters in the Ministry of finance which specially includes: taxation and

monetary policies.

3.12 Staff Strength and Placement I the Ministry of Finance, Enugu

The Ministry of Finance Enugu Staff strength as at the Last count on

July, 20,2009 was 105. It is depicted in the table as follow:

Staff Strength of the Ministry of Finance, Enugu

Department Senior Staff Junior Staff Management Total Number

Administration 8 20 2 30

Finance 8 12 1 21

Fiscal Planning 5 17 2 24

Treasury 4 7 1 12

Planning, Research

and Statistics

5 10 3 18

Grand Total 30 66 9 105

Source: Adminisrtion Department Ministry of Finance, Enugu

State

CHAPTER FOUR

DATA PRESENTATION, ANALYSIS AND FINDINGS

This chapter will focus on presentation and analysis of data collected

so far from both primary and secondary sources. The study will also test its

research hypotheses to ascertain their consistence with the findings.

However, it is pertinent to state that out of 240 questionnaires administered

by the researcher, only 220 were successfully recovered. In otherwise, 7

questionnaires were returned unanswered while the remaining 13

questionnaires were not recovered at the time of collection by the researcher.

4.1 Data Presentation

TABLE 4.1

RESPONDENTS’ OPINIONS ON WHETHER SEEDS IS A CIVIL

SERVICE REFORM

Options Frequency Percentage (%)

Strongly Agree 137 62.2

Agree 75 34.1

Undecided 0 0.0

Disagree 5 2.3

Strongly Disagree 3 1.4

Total 220 100

Source: Research Data, 2010.

Table 4.1 above, presented the respondents‟ opinions on whether SEEDS is

a civil service reform. From the above table, 137 respondents or 62.2%

strongly agreed that SEEDS is a civil service reform. In addition, 75

respondents or 34.1% also agreed that SEEDS is a civil service reform.

On the other hand, none of the respondent indicated on the option

with undecided as represented by 0.0%. 5 respondents or 2.3% however,

disagreed that SEEDS is a civil service reform while 3 respondents or 1.4%

strongly disagreed that SEEDS is a civil service reform.

The researcher endeavoured to ascertain more information from the

respondents in order to know why some respondents accepted and others did

not accept that SEEDS is a civil service reform. The oral interview

conducted revealed that the categories of the respondents who disagreed

believed that SEEDS reform is more of economic reform than civil service

reform. Finding shows that SEEDS is a civil service reform following our

literature review and the demonstration of the respondents‟ opinions that

SEESDS contains some reform programmes for the state civil service. From

our literature review, SEEDS reforms in the state civil service target on

eradication of corruption, performance improvement through staff training,

service delivery initiatives, due process, accountability and transparency in

budget execution. Oladipo (2009:37) and Soludo (2004:2) believed that

NEEDS and SEEDS as a civil service reform at federal and state

government levels aims at re-orientating and re-positioning the Nigerian

civil service as well as the state civil service to perform more efficiently

towards achieving their set goals.

TABLE 4.2

RESPONDENTS’ OPINIONS ON WHAT THEY CONSIDER THE

MAJOR OBJECTIVE FOR ESTABLISHING SEEDS

Options Frequency Percentage (%)

Public Service reform 105 47.7

Strengthening economic development 80 36.3

Enhancing the viability of government

work

20 9.1

Revival of Public accountability and

transparency

15 6.8

Total 220 100

Source: Research Data 2010.

Table 4.2 revealed that in a question directed to ascertain the major objective

for establishing SEEDS, 105 respondents or 47.7% indicated that public

service reform is the major objective for the establishment of SEEDS. 80

respondents or 36.3% indicated that strengthening economic development is

the major objective for establishing SEEDS. 20 respondents or 9.1%

indicated that enhancing the viability of government work is the major

objective for establishing SEEDS. Lastly, 15 respondents or 6.8% indicated

that the revival of public accountability and transparency is the major

objective for establishing SEEDS.

From the questionnaire item on question 9 and 10 which asked

respondents which objective appeals most to them and the reasons why they

chose their option, the researcher noted that greater percentage of the

respondents indicated that the major objective that appeal most to them is

public service reforms. However, many respondents disclosed that other

options listed in the questionnaire item question 8 are part of the SEEDS

reform target objectives for civil service in Enugu state.

Observation from oral interview conducted by the researcher shows

that most of the respondents linked these major objectives to the SEEDS

civil service reforms. Relating their views to the literature review, Soludo

(2006), Oladipo (2009), Nwatu (2007), Adegoroye (2005) among others

strongly believed that SEEDS aims at building a stronger public service at

the state government levels.

TABLE 4.3

RESPONDENTS’ OPINIONS ON WHETHER SEEDS IS A

GOVERNMENT DEVELOPMENT PLAN TO STRENGTHEN AND

PROVIDE A RESPONSIVE PUBLIC SERVICE IN ENUGU STATE

Options Frequency Percentage (%)

Strongly agree 140 63.6

Agree 80 36.4

Disagree 0 0.0

Strongly disagree 0 0.0

Undecided 0 0.0

Total 220 100

Source: Research Data 2010.

As depicted from the table above, 48 respondents or 63.6% strongly

agreed that SEEDS is Enugu State Government development plan to

strengthen and provide a responsive public service in the state. Another 80

respondents or 36.4% also agreed that SEEDS is a government development

plan to strengthen and provide a responsive public service in the state. On

the other hand, none of the respondent indicated on the options with

undecided, disagree and strongly disagree. This means that the respondents

affirmatively accepted that SEEDS is a government development plan to

strengthen and provide a responsive public service in the state.

Undoubtedly, the question in table 4.2 influenced the respondents

conclusion that SEEDS is the State Government development plan to

strengthen and provide a responsive public service in the state. This finding

also shows correlation with our position in the literature review as (Okeke,

2005:7 and Anekwe, 2005:16) have strongly argued that SEEDS is a

corporate plan for Enugu state‟s development.

TABLE 4.4

RESPONDENTS’ OPINIONS ON SEEDS REFORM/

DEVELOPMENT PROGRAMMES FOR ENUGU STATE CIVIL

SERVICE

Key areas identified Frequency Percentage (%)

Budget and Financial Management 40 18.2

Accountability Issues 50 22.7

Human Research Management 60 27.2

Operation System Management 45 20.5

Parastatal Reforms and Management 25 11.4

Total 220 100

Source: Research Data 2010.

Table 4.4 further investigates on the SEEDS reform programmes for

Enugu State civil service. Our aim is to note and assess the progress of these

programmes in relations to their objectives or targeted goals especially in the

Ministry of Education and Finance. From the table above, 40 respondents or

18.2% identified budget and financial management, 50 respondents or

22.7% identified accountability and transparency programme, 50

respondents or 27.2% identified human resources management, 45

respondents or 20.5% identified operation system management and 25

respondents or 11.4% identified ministerial/ parastatls reforms and

management.

From the oral interview conducted by the researcher, the respondents

revealed that at the state level, these programmes are managed and

administered by the State Economic Empowerment and Development

Strategy (SEEDS) which is the state implementing agency of NEEDS. On

the area of budget and financial management, the respondents disclosed that

there is now Budget Reform in the Budget Office of the state which ensures

that all budget transactions undergo due process in every State Ministry. In

addition, under the budget and financial management in Enugu state, there is

Budget Monitoring and Price Intelligence (BMPI) unit which its

responsibility is to review budget and ensure expenditure management

process in budget execution. Another broad area of the reform identified

by the respondents is accountability and transparency programme.

According to these respondents, accountability and transparency form a

major part of SEEDS reforms on public sector service. Accountability and

transparency as they pointed out will reduce the inflation of government

contracts and other systemic corruption in the civil service in the state.

Furthermore, the respondents also highlighted that human resource

management aspect of SEEDS reform on civil service emphasizes on

manpower training and development of civil servants, provision of

monetization of fringe benefits and other welfare schemes/packages for civil

servants. Operation System Management (OSM) and Parastatal Reforms

Management (PRM), according to the respondents these programmes are

geared towards strengthening the administrative efficiency and effectiveness

of service delivery in the civil service and entire educational and financial

sectors of the Enugu State public service. However, under these major

programmes, there exist other sub-programms such as Ministrial Service

Charter, Sector Wide Forum, Standardized Quality Assurance, Ministrial

Initiatives and Empowerment, Evidence Data Based among others. The

Ministrial Service specifies the vision and mission statement of each

ministry in the state. Sector Wide Forum provides the opportunity for all the

stakeholders both public and private to meet or gather and discuss on

sensitive issues (i.e. joint management forum). Standardized Quality

Assurance also ensures that ministries‟ projects and services are measured

with the set standards in order to enable quality service delivery. Evidence

Data Based is programme which provides the public with the evidence of

work done within a specific budget period in other words its gears towards

ensuring accountability in managing ministrial resources. Ministrial

Initiatives and Empowerment ensures strategy management and efficient

administrative capacity.

Conclusively, observation from the oral interview conducted with the

respondents or civil servants in the Ministry of Education and Finance

showed that SEEDS reform programme on Operation System Management

(OSM) has improved the management of government/public schools in

Enugu State especially in administrative capacity. Also some respondents in

the Ministry of Education revealed that budget reform has enhanced the

implementation of allocations on education which has led to efficient

management of the primary and secondary schools as well as the higher

institutions owned by the State Government. The respondents also

confirmed that progress has been recorded in the areas of construction of

new 210 primary schools, renovation of 586 primary across the state,

construction of 28 secondary schools and renovation of 160 dilapidated

secondary schools across the 17 local governments in the state. Inaddition,

the enrollment rate in the primary and secondary schools has increased

within the short period of implementation of SEEDS following the removal

of school fees in the primary and junior secondary schools as well as in the

payment of teachers‟ salaries in the state.

TABLE 4.5

RESPONDENTS’ OPINIONS ON WHETHER THE SEEDS REFORM

PROGRAMMES FOR CIVIL SERVICE ARE MAKING

SIGNIFICANCE EFFECTS IN STATE MINISTRIES

Option Frequency Percentage (%)

Strongly agree 85 38.6

Agree 70 31.8

Disagree 40 18.2

Strongly disagree 25 11.4

Undecided 0 0.0

Total 220 100

Source: Research Data, 2010.

Table 4.5 above investigates on whether SEEDS reform programmes

for civil service in Enugu State are making significance effects in the state

civil service. From the table, 85 respondents or 38.6% indicted strongly

agree while another 70 respondents or 31. 8% indicated agreed in support of

the question that SEEDS reform programmes for civil service are making

significance effects in Enugu state. The researcher endeavoured to certain

further information on the effects of SEEDS reform programmes on the

Enugu state civil service, through oral interview. The respondents argued

strongly that from record, the Enugu state civil service has improved in its

service delivery following the introduction of reform programmes such as

Performance Improvement Bureau (PIB), Due Process Act, Code of Conduct

for civil servants in Enugu state, Financial Intelligent Unit (FIU), Service

Delivery Initiatives (SDI) and other programmes which, improve technical

skills of the workers/ civil servants.

On the other hand, 40 respondents or 18.2% indicated disagreed while

25 respondents or 11.4% indicated strongly disagreed. However, none of the

respondent indicated undecided. Also the researcher observed that the

respondents who indicated strongly disagree and agree did that because to

them, they believe that there is still a gap not covered in the no-going reform

especially in the areas facilities improvement to improve service delivery as

well as in the management of human resource. Observation in some

departments of the Ministries under our case study showed that modern

facilities such as computers/ICTs facilities, new filing system, generators for

constant power supply, good toilet system and other office equipment have

been provided. For instance, in the Ministry of Education the reform

programmes have led to establishment of Ministrial Data Based Site known

as” www.enugu ministry of education.com” which gives vital information

on issues like: information on number of teachers in the state, information on

number of schools, management information, education policies in the state,

training of staff in the ministry and teachers in the state, international

partners, among others. Some offices visited in the Ministry of Education

and Finance still use manual typewriters while other vital office equipment

are in absence. These respondents also confirmed that in areas of

performance improvement, inadequate facilities have constrained expected

results in service delivery. In spite of their responses, they however admitted

in the oral interview conducted that SEEDS reform programmes are making

significance progress but will do more if the needed facilities in the civil

service are adequately provided.

TABLE 4.6

RESPONDENTS’ OPINIONS ON WHETHER SEEDS HAS

POSITIVELY IMPROVED THE OPERATIONAL EFFECTIVENESS

AND EFFICIENCY OF THE CIVIL SERVICE IN ENUGU STATE

Options Frequency Percentage (%)

Strongly agree 90 40.9

Agree 70 31.8

Disagree 40 18.2

Strongly disagree 20 9.1

Undecided 0 0.0

Total 220 100

Source: Research Data 2010.

Table 4.6 examines whether SEEDS has positively improved the

operational effectiveness and efficiency of the civil service in Enugu state.

From the table above, 90 respondents or 40.9% strongly agreed that SEEDS

has positively improved the operational effectiveness and efficiency of the

civil service in Enugu stated. In addition, another 70 respondents or 31.8%

agreed affirmatively that SEEDS has positively improved the operational

effectiveness and efficiency of the civil service in Enugu state.

On the other hand, 40 respondents or 18.2% disagreed to the question

asked which focused on whether SEEDS has positively improved the

operational effectiveness and efficiency of the civil service in Enugu state.

Another 20 respondents or 9.1% strongly disagreed that SEEDS has

positively improved the operational effectiveness and efficiency of the civil

service in Enugu state. Observations from the oral interview conducted by

the researcher in this aspect showed that the respondents reason for

indicating disagree and strongly disagree was due to the persistent incidence

of corrupt practices in the public services which included also the civil

service and others identified problems such as poor funding, delay in

budgetry release, aparthy on reform programmes, poor attitudes of workers

to embress intended changes and values of reform. This fact to an extent can

stand to question the opinions of the respondents who indicated agree and

strongly agree that SEEDS has positively improved the operational

effectiveness and efficiency of the Civil Service in Enugu State. Though,

evidence from the table showed that majority of the respondents claimed that

SEEDS has positively improved the operational effectiveness and efficiency

of the civil service in Enugu state.

TABLE 4.7

RESPONDENTS’ OPINIONS ON WHETHER THE EXTENT OF

EFFICIENCY AND EFFECTIVENESS IN THE IMPLEMENTATION

OF SEEDS DETERMINE THE EFFECTS OF SEEDS IN THE

DEVELOPMENT OF CIVIL SERVICE IN ENUGU STATE

Options Frequency Percentage (%)

Strongly agree 105 47.7

Agree 90 40.9

Disagree 13 5.9

Strongly disagree 10 4.5

Undecided 2 0.9

Total 220 100

Source: Research Data 2010.

From the above presented data, 105 respondents or 47.7% strongly

agreed that the extent of efficiency and effectiveness in the implementation

of SEEDS determines the effects of SEEDS in the development of Enugu

state civil service. In support to the above, 90 respondents or 40.9% agreed

with those who indicated strongly agreed that the extent of efficiency and

effectiveness in the implementation of SEEDS determines the effects in the

development of Enugu State Civil Service.

On the other hand, 13 respondents or 5.9% disagreed while 10

respondents or 4.5% strongly disagreed that the extent of efficiency and

effectiveness in the implementation of SEEDS programme determines the

effects in the development of Enugu State Civil Service. Only 2 respondents

or 0.9% indicated undecided to the question.

Observation from discussion or oral interview conducted with some

respondents showed that generally assessment on the effects of SEEDS in

the development of Enugu State Civil Service must be determined from the

extent of efficiency and effectiveness in the implementation of the reform

programmes of SEEDS in the state civil service. From our review, SEEDS is

a state reform programme for the Enugu State civil service and assessment

of its effects must assume a general criterion too of the state civil service.

However, the implementation effects of SEEDS programmes in Enugu state

will collectively show the general evaluation of its development on the Civil

Service in the state which can also be a criterion to determining the effects in

the Enugu State Ministry of Education and Finance.

Demonstratively, the researcher observed that other respondents who

indicated disagree and strongly disagree had their reason that the criterion of

efficiency and effectiveness are too hard or difficult to measure or determine

in public programmes and public service. To these respondents, the extent at

which the state government goals and service delivery are achieved can be

more appropriate to determine the effects of SEEDS on the development of

civil service in Enugu state. Apparently, their views are correct but their

responses in the further discussion with the researcher showed that they

accepted that achieving governmental goals and quality service delivery also

shows that the civil service is efficient and effective. Effective and efficient

civil service can be described as the one that achieves maximum goals of it

establishment.

TABLE 4.8

RESPONDENTS’ OPINIONS ON WHETHER THE ANTI-

CORRUPTION AND PUBLIC PROCUREMENT PROGRAMMES OF

SEEDS HAVE CONTRIBUTED IN IMPROVING THE SERVICE

DELIVERY OF ENUGU STATE CIVIL SERVICE

Options Frequency Percentage (%)

Strongly agree 62 28.2

Agree 98 44.4

Disagree 30 13.6

Strongly disagree 25 11.4

Undecided 5 2.3

Total 220 100

Source: Research Data 2010.

Table 4.8 examines whether the anti-corruption and public

procurement programmes of SEEDS have contributed in improving the

service delivery in Enugu state civil service especially as it concerns

Ministry of Education and Finance. Presentation from the table above shows

that 62 respondents or 28.2% strongly agreed to the question asked. 98

respondents or 44.5% agreed that anti-corruption and public procurement

programmes of SEEDS have contributed in improving the service delivery

of Enugu State Civil Service.

In other view, 30 respondents or 13.6% disagreed while 25

respondents or 11.4% strongly disagreed that anti-corruption and public

procurement programmes of SEEDS have contributed in improving the

service delivery of Enugu State Civil Service. Only 5 respondents or 2.3%

indicated undecided to the question asked.

Finding from the table above shows that majority of the respondents

supported that the anti-corruption and public procurement programmes of

SEEDS have contributed in improving the service delivery of Enugu State

Civil Service. These respondents based their facts on the achievement so far

recorded by the Enugu State Government Budget Monitoring Committee

and Ministerial Due Process Unit on the fight against corruption as well as

ensuring that public servants do not unlawful spend public funds for

personal needs/interests. According to one of the respondents in the Enugu

State Ministry Finance Mr. Nnamani, showed that the waves of activities

involving financial crimes, money laundering and other economic crimes

have been stemmed and government officials or any other persons, for that

matter, desiring to siphon public money aboard now have to rethink.

On the other hand, some few respondents who indicated disagree and

strongly disagree argued that there are cases of mismanagement or

misappropriation of public funds and the arrest and prosecution of many

offenders have been very minimal in the state and generally in Nigeria. In

addition, the respondents disclosed that those who are the staff members of

the State Committees on budget monitoring and implementation are equally

not exempted from corrupt practices. Observation shows that anti-corruption

and public procurement have not achieved effective results in the state

public service in to order to enhance quality service delivery. This is why we

stated in our research hypothesis three that “high incidence of bureaucratic

corruption and poor service delivery are money key constraints militating

against the effort of SEEDS programmes on the development of public

service in Enugu state”.

TABLE 4.9

RESPONDENTS’ ASSESSMENT ON WHETHER DUE PROCESS

ACT HAS EFFECTIVELY CONTRIBUTED TO IMPROVE THE

DISCHARGE OF SERVICES IN ENUGU STATE CIVIL SERVICE

Options Frequency Percentage (%)

Strongly agree 62 28.2

Agree 119 54.1

Disagree 20 9.1

Strongly disagree 15 6.8

Undecided 4 1.8

Total 220 100

Source: Research Data 2010.

Table 4.9 examines further whether the Due Process Act has

effectively contributed to improve the discharge of services in Enugu state

civil service. From the table, 62 respondents or 28.2% strongly agreed while

119 respondents or 54.1% agreed that the Due Process Act has effectively

contributed to improve the discharge of services in Enugu state civil service.

On the other hand, 20 respondents or 9.1% disagreed while 15

respondents or 6.8% strongly disagreed that the Due Process Act has

effectively contributed to improve the discharge of services in Enugu State

Civil Service.

Findings from the responses given by the respondents validate our

contention in the literature that Due Process has contributed in improving the

service delivery in civil service. For example, Oransaye (2005:49) and

Ezekwesili (2004:25) believed that Due Process has strengthened openness

or transparency, competency or qualification and manner of giving services

in the Nigerian Civil Service.

TABLE 4.10

RESPONDENTS’ VIEWS ON WHETHER THE EFFECT OF DOWN-

SIZING THE CIVIL SERVICE UNDER THE SEEDS REFORMS

AFFECTS THE CIVIL SERVANTS IN STATE MINISTRIES

Options Frequency Percentage (%)

Strongly agree 105 47.7

Agree 80 36.4

Disagree 20 9.1

Strongly disagree 15 6.8

Undecided 0 0.0

Total 220 100

Source: Research Data 2010.

The above table 4.10 shows the respondents opinions on whether the

effects of down-sizing the civil service under the SEEDS reforms affect the

civil servants in Enugu State. The data presented above showed that 105

respondents or 47.7% strongly agreed while 80 respondents or 36.4% agreed

that the effects of down- sizing the civil service under the SEEDS reforms

affect the civil servants.

On the other hand, 20 respondents or 9.1% strongly disagreed that the

effects of down-sizing the civil service under the SEEDS reforms affect the

civil servants.

Observation recorded by the researcher from the oral interview

conducted showed that down-sizing of the civil service under the SEEDS

reforms involves cutting – down the number of manpower in the civil

service in order to reduce the cost of running public service. Therefore, one

of the effects identified by the respondents is retrenchment of civil servants

which they said has unbearable consequences on the civil servants. Also

other respondents who indicated disagree and strongly disagreed believed

that the effect of down-sizing of state public sector service is more peculiar

with the civil servants who possess low qualifications and poor competence

civil servants. In this case, the study accepts that the down-sizing of the civil

service under the SEEDS reforms have negative effects on the civil servants

since it involves retrenchment of workers in the public sector services.

TABLE 4.11

RESPONDENTS’ OPINIONS ON WHETHER HIGH INCIDENCE OF

BUREAUCRATIC CORRUPTION AND POOR SERVICE

DELIVERY ARE AMONG THE KEY FACTORS MILITATING

AGAINST THE EFFECT OF SEEDS ON THE DEVELOPMENT OF

CIVIL SERVICE IN ENUGU STATE

Options Frequency Percentage (%)

Strongly agree 108 49.1

Agree 92 41.8

Disagree 15 6.8

Strongly disagree 5 2.3

Undecided 0 0.0

Total 220 100

Source: Research Data 2010.

Table 4.11 examines the respondents‟ opinions on whether high

incidence of bureaucratic corruption and poor service delivery are among the

key factors militating against the effort of SEEDS on the development of

civil service in Enugu State. As presented above, 108 respondents indicated

strongly agree while 92 respondents indicated agree. This showed that the

respondents accepted that high incidence of bureaucratic corruption and poor

service delivery, are among the key factors militating against the effort of

SEEDS on the development of civil service in Enugu state. To established

evidence, the respondents disclosed that the introduction of code of conduct

for Enugu State Civil Service, Public Procurement, Due Process and Anti-

corruption agencies aimed at reducing high incidence of corruption in the

civil service. Oronsaye (1984:45) and Enugu State SEEDS (2004:79) have

highlighted corruption as one the factors which has led to inefficiency in the

Nigerian civil service. In addition, the Performance Improvement Bureau

(PIB) was also introduced to strengthen the service delivery in civil service.

The focus of the PIB is on service delivery by strengthening management

capacity of the civil servants. The emphasis on fight against corruption and

Poor Service delivery shows that bureaucratic corruption and poor service

delivery are two major factors militating against the effort of SEEDS on the

development civil service in Enugu State.

Moreover, the respondents stressed that high incidence of bureaucratic

corruption in the civil service in Nigeria is often linked as a major factor

constraining the service delivery of the Enugu State civil service. In their

explanations, the respondents pointed out that corruption pervert the set

standards for rendering services to the public. The respondents also stressed

that corruption leads to poor service delivery in the public services and in

general poor contribution of civil service to the national development goals.

TABLE 4.12

RESPONDENTS’ ASSESSMENT ON WHETHER THE

PERFORMANCE OF ENUGU STATE CIVIL SERVICE

GENERALLY HAS BEEN EFFICIENT

Options Frequency Percentage (%)

Strongly agree 50 22.7

Agree 80 36.4

Disagree 70 31.8

Strongly disagree 20 9.1

Undecided 0 0.0

Total 220 100

Source: Research Data 2010.

Table 4.12 assesses the respondents‟ opinions on whether the

performance of the Enugu State civil service generally has been efficient.

From the table, 50 respondents or 22.7% strongly agreed while 80

respondents or 36.4% agreed that the performance of the Enugu State civil

service generally has been efficient.

In another view, 70 respondents or 31.8% disagreed while 20

respondents or 9.1% strongly disagreed that the performance of the Enugu

State civil service generally has been efficient. None of the respondent

indicated undecided.

Finding shows that majority of the respondents were of the opinions

that the performance of the Enugu State civil service has been efficient. The

score-card of the respondents was based on the improvement of service

delivery in the civil service. In addition, they revealed that activities of Due

Process, Public Procurement Bill, Performance Improvement Bureau (PIB)

among others have improved the efficiency of the Enugu State Civil Service.

On the other hand, the respondents who indicated disagreed and strongly

disagree argued that even though there is an improvement in the

performance of Enugu state civil service, the level of corruption, waste of

resources, poor accountability and break down of code of conduct have been

continuously witnessed in the state civil service even in the present days. In

the Ministry of Education for example, the respondents disclosed that PIB

has improved the performance of primary and secondary schools through the

monthly inspectorate exercise by the Ministry. Although, the respondents

revealed that the State Post- Primary School Management Board has in the

past four years introduced some performance improvement programmes for

the teachers in order to boast their teaching skills. Also the Due Process

reform assists in ensuring that quality education is achieved by the advocacy

against examination malpractices in the schools, staff discipline as well as

maintaing finanancial discipline.

TABLE 4.13

RESPONDENTS’ ASSESSMENT ON THE RATE OF SERVICE

DELIVERY OF THE CIVIL SERVICE IN ENUGU STATE

PARTICULARLY IN MINISTRY OF EDUCATION AND FINANCE

Options Frequency Percentage (%)

Strongly agree 90 40.9

Agree 100 45.5

Disagree 20 9.1

Strongly agree 10 4.5

Undecided 0 0.0

Total 220 100

Source: Research Data 2010.

Table 4.14 examines the rate of service delivery of the civil service in

Enugu state particularly in the Ministry of Education and Finance. From the

table above, demonstration of the respondents‟ answers showed that 90

respondents or 40.9% strongly agreed while 100 respondents or 45.5%

agreed that the rate of service delivery of the civil service in Enugu state has

improved.

In other words, 20 respondents or 9.1% disagreed while 10

respondents or 4.5% strongly disagreed that the rate of service delivery of

the civil in Nigeria particularly in Enugu state has not improved.

From the respondents interviewed by the researcher, observations

were made that service delivery of the Nigerian civil service both at the

federal and state level has improved as a result of the introduction of the

Service Delivery Initiative (SDI) and Performance Improvement Bureau

(PIB). The respondents disclosed that the introduction of the SDI has helped

in monitoring the service delivery of the civil service as well as suggesting

modalities for improvement. According to the Head Education Planning/

Logistics Unit of the Ministry of Education, Mrs. Ngene, the above

mentioned programmes were conceived in the state ministries following the

introduction of Enugu State SEEDS in 2004. She also confirmed that the

state has recorded outstanding success in enrolments of pupils in the primary

schools. Satistically, over 70% success has been achieved so far. The

researcher‟s effort to know exatert number of the pupils who enrolled from

1999- 2007 was not successful but estimates gave was about 78,000 pupils

yearly. However, the respondents who rated the service delivery low in the

service claimed that facilities are inadequate to enhance the quality service

delivery. The respondents believed that state government has to do more in

the area of infrastructural development in the state to enhance service

delivery. This finding goes further to validate our statement in the research

hypothesis two that SEEDS has positive effects in the operational

effectiveness and efficiency of the public service in Enugu state.

TABLE 4.14

RESPONDENTS ASSESSMENT ON THE STATE OF PUBLIC

ACCOUNTABILITY AND TRANSPARENCY IN THE ENUGU

STATE CIVIL SERVICE

Options Frequency Percentage (%)

Highly satisfied 75 34.1

Satisfied 60 27.3

Dissatisfied 50 22.7

Highly dissatisfied 35 15.9

Undecided 0 0.0

Source: Research Data 2010.

Table 4.15 investigates the respondents‟ assessment on the state of

public accountability and transparency in the civil service in Enugu state. As

presented in the table above, 75 respondents or 34.1% said that they were

highly satisfied with the state of public accountability and transparency in

the in Enugu state. Also another 60 respondents or 27.3% admitted that they

were satisfied with the state of public accountability and transparency in the

state civil service.

On the other hand, 50 respondents or 22.7% indicated that they were

dissatisfied while 35 respondents or 15.9% admitted that they were highly

dissatisfied with the state of public accountability and transparency in Enugu

state civil service. None of the respondent indicated undecided as

represented by 0.0%.

Observations from the oral interview conducted by the researcher

showed that the respondents who claimed that they were highly satisfied and

satisfied with the state of public accountability and transparency in the

Enugu State civil service believed that the introduction of SEEDS reform

programmes have upgraded the mechanisms through which public

accountability and transparency is ensured in the state civil service as well as

in the state public service in general. The identified mechanisms by these

respondents in the Ministry of Finance include; the Budget Execution

reform, Public Procurement reform in the Budget Monitoring and Price

Intelligence Unit, Accounting and Auditing reforms in both the Office of the

Accountant- General of the Federation and State as well as the Office of the

Auditor- General for the Federation and the state. In addition, the

respondents identified the anti-corruption, transparency and accountability

reforms and added that the activities the Enugu State Due Process and

Federal agencies such as ICPC and EFCC that work in collaboration with

the state have improved the state of public accountability and transparency

in the Nigerian Civil Service and in Enugu State in particular. Observation

showed that mostly categories of these respondents were the management

cadre of the Ministry of Finance Enugu State.

In other words, some few respondents still indicated dissatisfied and

highly dissatisfied in which they claimed that there are cases of poor public

accountability and transparency in the federal and state levels of civil service

despite the improvement made by the Public Accountability and

Transparency Agencies.

TABLE 4.15

RESPONDENTS ASSESSMENT ON THE RATE OF

BUREAUCRATIC CORRUPTION IN THE PUBLIC SERVICE IN

ENUGU STATE

Options Frequency Percentage (%)

Very high 60 27.3

High 120 54.5

Low 40 18.2

Very low 0 0.0

Undecided 0 0.0

Total 220 100

Source: Research Data 2010.

Table 4.16 shows the respondents‟ assessment on the rate of

bureaucratic corruption in the civil service in Enugu state. Presentation in

the table shows that 60 respondents or 27.3% indicated very high while 120

respondents or 54.5% indicated high. This shows that their assessments on

the rate of bureaucratic corruption in the public service is generally high or

per se very high.

On the other hand, 40 respondents or 18.2% indicated that

bureaucratic corruption in the public service is low.

Analytically from the above, all the respondents accepted that

bureaucratic corruption exists in all sectors of the Nigerian public service.

However, their assessments on rate of bureaucratic appeared differently,

most of the respondents revealed in the oral interview that following the

high incidence of bureaucratic corruption in public service, government has

redoubled its effort on fighting corrupt practices in the civil service in the

on-going Civil Service reforms through the institutionalization of Code of

Conduct for Enugu State workers, and ICPC, EFFCC, Due Process Act

among others which also state in collaboration with the state governments in

maintaining public accountability in the public services. These respondents

also disclosed that corruption constrains service delivery in the civil service

and in other public services as we demonstrated in the research hypothesis

three. Also in our literature review, Adebayo (2004:176), Oransaye

(1984:41), Balogun (1978:33) and Okoli and Onah (2002:187) have strongly

argued that corruption is a general problem of the Nigerian public service.

TABLE 4.16

RESPONDENTS ASSESSMENT ON HUMAN RESOURCE

MANAGEMENT IN THE CIVIL SERVICE IN ENUGU STATE

Options Frequency Percentage (%)

Highly satisfied 35 15.9

Satisfied 80 36.4

Dissatisfied 85 38.6

Highly dissatisfied 20 9.1

Undecided 0 0.0

Total 220 100

Source: Research Data 2010.

Table 4.17 presents the respondents‟ assessment on the human

resources management in the Enugu State Civil Service. As presented above,

35 respondents or 15.9% accepted that they were highly satisfied with the

human resources management in the Enugu State Civil Service. In addition,

80 respondents or 36.4% showed that they were satisfied with the human

resource management in the Enugu State Civil Service.

On the other hand, 85 respondents or 38.6% showed that they were

dissatisfied with the human resource management in the Enugu State Civil

Service. Also 20 respondents or 9.1% showed that they were highly

dissatisfied with the human resources management in the Enugu State Civil

Service.

From assessment made by the respondents on the human resource

management in the civil service, most of them emphasized that human

resource of any organization is the reflection of its performance. According

to the respondents, the human resource management in the Enugu State Civil

Service has been strengthened through manpower training and development

of the SEEDS reform. According to the HR Managers in the Minitry of

Education and Finance, these training focused mainly on performance

improvement, capacity building, quality service delivery, record keeping,

Information and Commission Technologies (ICTs) among others. However,

there some respondents who confirmed that the human resource

management in the Civil Service has been inadequate or not satisfying

because the training programmes have not adequately covered all the cadre

of the Civil Service especially the junior staff. Observation shows that

respondents linked the improvement of human resources management in the

civil service to the Enugu State SEEDS reform programmes which

manpower training and development is a key priority. Inaddition, the

Ministry of Education also design training programmes for the primary and

secondary schools teachers in collaboration with the Enugu State Post

Primary School Management Board (PPSMB) in areas of basic education

and development in order to enhancing government objectives in the

education sector of the state.

TABLE 4.17

RESPONDENTS ASSESSMENT ON THE PROVISIONS OF

WELFARE SCHEMES FOR THE CIVIL SERVANTS IN ENUGU

STATE

Options Frequency Percentage (%)

Highly satisfied 80 36.4

Satisfied 70 31.8

Dissatisfied 20 9.1

Highly dissatisfied 50 22.7

Undecided 0 0.0

Total 220 100

Source: Research Data 2010.

The responses in table 4.18 showed that the assessment in the

provisions of welfare schemes for civil servants in Enugu state is not

adequately satisfying. As presented in the table above, 80 respondents or

36.4% indicated that they were highly satisfied with the provisions of

welfare schemes for the civil service. 70 respondents or 31.8% indicated that

they were satisfied with the provisions of welfare schemes for the civil

servants in the state. On the other hand, 20 respondents or 9.1% indicated

that they were dissatisfied with the provisions of welfare schemes for the

civil servants in Enugu state. Also, 50 respondents or 22.7% indicated highly

dissatisfied to show that the provisions of welfare scheme for the civil

servants are inadequate.

Drawing inferences from the table above, most of the respondents

accepted that the provisions of welfare schemes for civil servants in Enugu

state are satisfying. The respondents interviewed by the researcher disclosed

that under the on- going SEEDS reforms, the provisions of welfare schemes

has been monetized for the Enugu State civil servants under the

monetization of fringe Benefits introduced on 1st July 2003, but the state

government has not been fully implemented it. This they said have slowed

down the provisions and subsidies in staff welfare packages such as

residential accommodation, transportation and other subsidized utilities

provided to the civil service by the government. The researcher endeavoured

to ask whether some of them were provided accommodation in the state civil

service quarters, transportation facilities, health care services and other

allowances, some who answered or responded to the researcher accepted that

provisions are made for such services in the Enugu State Civil Service

particularly in the Ministry of Education and Finance. But they however

emphasized that the policy of Monetization of Fringe Benefits should be

fully implemented in the state level in order to motivate civil servants and to

prepare them for the life after retirement from service by preventing a sharp

drop in their standard of living after their retirement.

TABLE 4.18

CHALLENGING FACTORS TO SEEDS DEVELOPMENT

PROGRAMMES IN CIVIL SERVICE IN ENUGU STATE

Identified challenges Frequency Percentages

Lack of political will 32 14.5

Sustainability problems 50 22.7

Corruption 78 35.5

Lack of service delivery

orientation and capacity

60 27.3

Total 220 100

Source: Research Data 2010.

The above table 4.19 shows the major challenges or key factors

militating against SEEDS development programmes in the civil service in

Enugu State. The table shows that 32 respondents or 14.5% identified lack

of political will as a factor which constrains SEEDS development

programmes in civil service in Enugu State. 50 respondents or 22.7%

identified sustainability problems as another challenging factor militating

against SEEDS development programmes in civil service in Enugu state. 78

respondents or 35.5% identified corruption as yet a challenging factor to

SEEDS development programmes in civil service. And 60 respondents or

27.3% identified lack of service delivery orientation and capacity as

challenging factor to SEEDS development programmes in the Enugu civil

service.

Analyzing the respondents comments, as they appeared in the

questionnaires distributed, lack of political will in implementing the SEEDS

reform programmes as the respondents stressed has not been too strong in all

the aspect of the reform programmes especially in pudget reform, public

accountability, public procurement, anti- corruption, monetization of fringe

benefits, and manpower training and development. The respondents

recounted that the chief architects of any reform are the political leaders and

their unwillingness to duely implement reforms directives affect

achievement of reform objectives. Other respondents confirmed that

unwillingness of political leaders to implement reform directives result to

sustainability problems. In similar vein, and based on the oral interview

conducted, the respondents revealed that sustainability of SEEDS reform

programmes is still a big challenge facing the Bureau of Public Service

Reforms (BPSR) in the on-going civil service reform in Enugu state.

In addition, some respondents stressed that corruption in the civil

service and generally in all sectors of public sector service has persisted

despite all the effort so far made by the anti-corruption agencies. But they

stressed that there is confindence that the fight against corruption in the state

would yield good results if the implementation of SEEDS reforms will be

given the required support by all stakeholders. Observation from the

interview conducted also showed that other respondents who identified lack

of service delivery orientation and capacity believe strongly that corruption

still affects the quality of service delivery in the state civil service.

According to these respondents, corruption is not the only factor

constraining service delivery, the poor state of modern facilities also affect

performance of the Enugu state civil service. In our research hypothesis

three, our claim that high incidence of bureaucratic corruption and poor

service delivery are among key constraints militating against the effort of

SEEDS programmes in the development of public service in Enugu state is

validated against the above finding. However, the respondents have

identified that there are other serious challenging factors militating against

SEEDS development programmes in the Enugu state civil service such as

lack political will and sustainability problems which should be critically

examined if the intended results of Enugu State SEEDS programmes in civil

service must be achieved.

TABLE 4.19

RESPONDENTS SUGGESTIONS AS SOLUTIONS TO OVERCOME

THE CHALLENGES MILITATING AGAINST SEEDS

DEVELOPMENT PROGRAMMES IN THE ENUGU STATE CIVIL

SERVICE

Identified Solution Frequency Percentage (%)

Building managerial capacity 70 31.8

Efficient management of HR 65 29.5

Strengthening war against corruption 50 22.7

Ensuring suitability of programs 35 15.9

Total 220 100

Source: Research Data 2010.

Table 4.20 investigates the solutions identified by the respondents as

measures to improve the impact of the SEEDS development programmes in

the state civil service. Analytically, 70 respondents or 31.8% suggested that

building managerial capacity of the civil service as a measure or solution to

ensure good impact of SEEDS development programmes in the civil service.

65 respondents or 29.5% suggested that efficient management of human

resources must be ensured to enable the impact of SEEDS development

programmes in the civil service yield good results. 50 respondents or 22.7%

suggested that strengthening the war against corruption generally in the

public service would make the effects of SEEDS development programmes

more advantageous and positive to civil service in the state civil service.

Lastly, 35 respondents or 15.9% have their opinions that ensuring

sustainability of the reform programmes will also improve the effects of

SEEDS development programmes in the state civil service.

Observation from the respondents‟ comments or responses from the

oral interview conducted showed that building managerial capacity of the

Enugu State civil service would ensure that management and other

stakeholders involved in the implementation of SEEDS reforms will

vigorously pursue the reform objectives. Management capacity also involves

strengthening management techniques such as budget execution,

performance improvement, code of conduct, service delivery, due process,

among others which can improve the management efficiency and

effectiveness of the civil service. In addition, building managerial capacity

also involves ensuring efficient human resources management in the civil

service. This is because the human side of the civil service or any

organization is the most vital resources that put other material resources in to

use for achieving organizational goals. Staff training according to the

respondents is a process that develops and improves skills related to

performance. Effective training programmes for the civil servants can result

in increased productivity, labour turnover and greater employee satisfaction.

The respondents also stressed the need for adequate provision of

welfare packages for the civil servants in Enugu State. According to them,

well and adequate motivation of the civil servants will reduce the high

incidence of bureaucratic corruption in the Enugu State civil service. Some

of the respondents disclosed that what normally or usually pushes the civil

servants to deviate from the set standards and in taking bribery is to make a

living. They explained that in a situation where the civil servants are owed

several months of salary, it is expected that many will subvert the code of

conduct and accountability especially in management of public funds. The

respondents emphatically stressed that the fight against corruption in the

Enugu State public service should be strengthened. According to them,

responsive and efficient civil service is not guaranteed if corruption is in the

increase. On the other hand, the respondents also stressed the need to ensure

the sustainability of the reform prorgrammes in order to achieve their

intended results.

Test of Hypotheses

The assumption contained in our research hypotheses of this study

will be subjected to chi-square test to reinforce the analysis and

interpretations in the findings. The research will test these hypotheses using

5% level of significance to ascertain the validity or otherwise and to test

whether or not there is any association between set of variables and another.

In general, three hypotheses were formulated, and using the chi-square x2

formula.

Chi –square formula

X2 =∑ Oij - E ij

Eij

Where , Ojj = the number observed in the row and jth column.

Eij = the number expected in the cell under the null hypotheses and

is obtained by:

Eij = Li x Mj

N

Where Li = marginal row total

Mj = marginal column total

N = overall total or number of observations

The chi=square utilizes what is called the degree of freedom and specified

test criteria. The degree of freedom (df) is simply:

Df = (r-1) (c-1)

Where, r = number of rows

c = number of columns

Restatement of Hypoytheses

All the hypotheses stated /formulated earlier are restated below:

Hypothesis one: The extent of efficiency and effectiveness in the

implementation of Enugu State SEEDS reform programmes determine the

effects in development of Enugu state civil service.

Hypothesis Two: SEEDS has positive effects in the operational effectiveness

and efficiency of the public service in Enugu state.

Hypotheses Three: High incidence of bureaucratic corruption and poor

service delivery are among key constrains militating against the effort of

SEEDS programmes on the development of public service in Enugu state.

Decision Rule

If the calculate value is greater than the table value, reject the null

hypothesis (Ho) and accept the alternative (Ha) at 0.05% level of

significance.

Research Hypothesis One

The extent of efficiency and effectiveness in the implementation of

Enugu State SEEDS reform programmes determine the effects in the

development of Eungu state civil service.

Question analyzed in table 4.7 would be used to test the hypothesis.

TABLE 4.20

TABLE OF OBSERVED RESPONSES

Categories of Staff SA A D SD U Total

Management 15 10 3 2 0 30

Senior staff 40 30 3 3 0 76

Junior staff 50 50 7 5 2 114

Total 105 90 13 10 2 220

Source: Research Date 2010.

Where SA = Strongly agree

A = Agree

D = Disagree

SD = Strongly disagree

U = Undecided

The hypothesis shall be tested at 0.05 level of significance in order

determine its correlation with our research findings.

Computation of expected (e)

e1 105 X 30 = 14.3

220

e2 90 x 30 =12 .3

220

e3 13 X 30 = 1. 8

220

e4 10 X 30 = 1.4

220

e5 2 X 30 = 0.3

220

e6 105 X 76 = 36.3

220

e7 90 X 79 = 31.1

220

e8 13 X 76 = 4.5

220

e9 10 X 76 = 3.5

220

e10 2 X 76 = 0.6

220

e11 105 X 114 = 54.4

220

e12 90 X114 = 46.6

220

e13 13 X 114 =6 .7

220

e14 10 X 114 = 5 .2

220

e15 2 X 114 = 1.0

220

TABLE FOR COMPUTATION OF CHI- SQUARE

0 e 0-e (0-e)2

(0-e)2

e

15 14.3 0.7 0.49 0.03

10 12.3 -2.3 5.29 0.43

3 1.8 1.2 1.44 0.8

2 1.4 0.6 0.36 0.26

0 0.3 -0.3 0.09 0.3

40 36.3 3.7 13.69 0.38

30 31.1 -1.1 1.21 0.04

3 4.5 -1.5 2.25 0.5

3 3.5 -0.5 0.25 0.07

0 0.6 -0.6 0.36 0.6

50 54.4 -4.4 19.36 0.36

50 46.6 3.4 11.56 0.25

7 6.7 0.3 0.09 0.01

5 5.2 -0.2 0.04 0.01

2 1.0 1.0 1.00 1.0

(X2) chi- square calculated 5.04

Source: Research Data 2010.

Obtain the X2 table value using the degree of freedom and level of

significance given at 0.05 and df (r -c)( c-1). From our table of observed

responses, the degree of freedom is (3 - 1) (5 – 1) = 2 x 4 =8.

As stated earlier, the level of significance is 0.05 and with the

degree of freedom (df) at 8, the researcher now refer to the table of sampling

distribution chi –square for 8 df at 0.05 level of significance is 15.507.

Decision Rule:

Reject H0 if chi-square calculated is (greater than ) chi-square X2

critical

value and do not reject H0 if otherwise.

Conclusion:

Since chi –square calculated value (5.04) is less than chi –square critical

value (15.507) at 0.05 level of significance and 5df, we therefore accept the

hypothetical statement that the extent of efficiency and effectiveness in the

implementation of Enugu State SEEDS reform programmes determine the

effects in the development of Enugu State Civil Service. Analytically, the

Enugu State Civil Service is the focal point at which SEEDS reforms are to

be tested since the civil service is a sensitive part of the state public service.

The efficiency and effectiveness of the civil service in Enugu State

presupposes that Enugu State SEEDS is also efficient and effective in

achieving its set objectives in reforming and developing the state public

service. Therefore, the Enugu State civil service is general yardstick or

background through which one can effectively base his evaluation or

assessment of SEEDS development programmes in the Enugu state civil

service.

Research Hypothesis Two

SEEDS has positive effects in the operational effectiveness and efficiency

of the public service in Enugu state.

Question analyzed in table 4.6 would be used to test the hypothesis

above.

TABLE 4.21

TABLE OF OBSERVED RESPONSES

Categories of Staff SA A D SD U Total

Management 10 15 0 0 0 25

Senior staff 35 30 10 4 0 79

Junior staff 45 25 30 16 0 116

Total 90 70 40 20 0 220

Source: Research Data 2010.

Where, SA = Strongly agree

A = Agree

D = Disagree

SA = Strongly disagree

U = Undecided

The hypothesis shall be tested at 0.05 level of significance in order to

determine its correlation with our research findings.

Computation of expected (e)

e1 90 x 25 = 10.22

220

e2 70 x 25 = 7.95

220

e3 40 x 25 = 4.55

220

e4 20 x 25 = 2. 27

220

e5 0 x 25 = 0

220

e6 90 x 79 = 32.32

220

e7 70 x 79 = 25. 14

220

e8 40 x 79 = 14.36

220

e9 20 x 79 = 7.18

220

e10 0 x 79 = 0

220

e11 90 x 116 = 47.45

220

e12 70 x 116 = 36.91

220

e13 40 x 116 = 10.55

220

e14 20 x 116 = 10.55

220

e15 0 x 116 = 0

220

TABLE FOR COMPUTATION OF CHI- SQUARE

0 E 0 – e (0 –e)2 (0 -e )

2

e

10 10.22 - 0.22 0.0484 0.00

15 7.95 7.05 49.7025 6.25

0 4.55 - 4.55 20.7025 4.55

0 2.27 -2.27 5.1529 2.27

0 0 0 0 0

35 32.32 2.68 7.1824 0.22

30 25.14 4.86 23.6196 0.94

10 14.36 -4.36 19.0096 1.32

4 7.18 3.18 10.1124 1.41

0 0 0 0 0

45 47.45 - 2.45 6.0025 0.13

25 36.91 - 11.91 141.8481 3.84

30 21.09 8.91 79.3881 3.76

16 10.55 5.45 29.7025 2.82

0 0 0 0 0

(x2) chi- square calculated 27.51

Source: Research Data 2010.

Obtain the x2 table value using the degree of freedom and level of

significance given at 0.05 and df (r – I) (c – I). From our table of observed

responses the degree of freedom is (3 – 1) (5 – 1) 2 x 4 = 8.

As stated earlier, the level of significance is 0.05 and with the degree

of freedom (df) at 8, the researcher now refer to the table of sampling

distribution chi-square for 8 df at 0.05 level of significance. The critical chi-

square value for 8 df and 0.05 level of significance is 15.507.

Decision Rule:

Reject, Ho if chi-square calculated is > (greater than) chi-square X2

critical value and do not reject Ho if other wise.

Conclusion:

Drawing inference from the table analysis, it is observed that SEEDS

has positive effects in the operational effectiveness and efficiency of the

public service in Enugu state. This as we have observed from our research

findings lead to improvement in the provisions of service delivery in the

Enugu State civil service. This finding does not dismiss the fact that most of

the scholars assessments in the literature review have it the Nigerian Civil

Service in general has been ineffective and inefficient predicated in the high

rate of corruption, absence of modern facilities to improve service delivery

and lack of service delivery orientation, but as Soludo (2004) and Saliu et al

(2009) and Adegroroy (2009) strongly believed the introduction of the on-

going reforms in the civil service at the federal and the state levels

respectively have improved operational effectiveness and efficiency through

the development programmes in the civil service. For instance, in the

Ministry of Education and Finance, we observed that the reform

programmes have strengthened the accountability and transparency in

management of public funds in terms of awarding contracts, public

procurement, due process, as well as improving the economic activities of

Enugu State. On the other hand, in the Ministry of Education, improvement

has been in the areas of enrolment of school year children in the state

primary and secondary schools, construction of new primary and secondary

schools, staff training and development of teachers, provisions of necessary

office equipment such as computers, stationeries, buses, laboratories

materials, etc as well as in the provisions of welfare packages.

Research Hypothesis Three

High incidence of bureaucratic corruption and poor service delivery

are among key constraints militating against the effort of SEEDS

programmes on the development of public service in Enugu state.

Question analyzed in table 4.11 would be used to test the hypothesis.

Table 4.22

Categories of Staff SA A D SD U Total

Management 23 12 0 0 0 35

Senior staff 35 40 2 0 0 77

Junior staff 50 40 13 5 0 108

Total 108 92 15 5 0 220

Source: Research Data 2010.

Where, SA = Strongly agree

A = Agree

D = Disagree

SD = Strongly disagree

U = Undecided

The hypothesis shall be tested at 0.05 level of significance in order to

determine its correlation with our research findings.

Computation of expected (e)

e1 108 x 35 = 17.18

220

e2 92 x 35 = 14.64

220

e3 15 x 35 = 2.39

220

e4 5 x 35 = 0.79

220

e5 0 x 35 = 0

220

e6 108 x 77 = 37. 8

220

e7 92 x 77 = 32.2

220

e8 15 x 77 = 5.25

220

e9 5 x 77 = 1.75

220

e10 0 x 77 = 0

220

e11 108 x 108 = 53.02

220

e12 92 x 108 = 45.16

220

e13 15 x 108 = 7.36

220

e14 5 x 108 = 2.45

220

e15 0 x 108 = 0

220

TABLE FOR COMPUTATION OF CHI-SQUARE

0 E 0 – e (0 –e)2 (0 -e )

2

e

23 17.8 5.2 27.04 1.52

12 14.64 -2.64 6.9698 0.48

0 2.39 -2.39 5.7121 2.39

0 0.79 -0.79 0.6241 0.79

0 0 0 0 0

35 37.8 2.8 7.84 0.21

40 32.2 7.8 60.84 1.89

2 5.25 -3.25 10.5625 2.01

0 1.75 -1.75 3.0625 1.75

0 0 0 0 0

50 53.02 -3.02 9.1204 0.17

40 45.16 - 5.16 26.6256 0.59

13 7.36 5.65 31.8096 4.32

5 2.45 2.55 6.5025 2.65

0 0 0 0 0

(X2) chi- square calculated 18. 77

Source: Research Data 2010.

Obtain the X2 table value using the degree of freedom and level of

significance given at 0.05 and df (r – I) (c- I). From out table of observed

responses, the degree of freedom is (3- 1) (5 -1) 2 x 4 = 8.

As stated earlier, the level of significance is 0.05 and with the degree

of freedom (df) at 8, the researcher now refer to the table of sampling

distribution chi-square for 8 df at 0.05 level of significance. The critical chi-

square value for 8 df and 0.05 level of significance is 15.507.

Decision Rule:

Reject Ho, if chi-square calculated is > (greater than) chi-square X2

critical value and do not reject Ho if otherwise.

Conclusion:

Demonstration from the above statistical data showed that our

statement in the research hypothesis three that high incidence of bureaucratic

corruption and poor service delivery are among key constraints militating

against the effort of SEEDS programmes in the development of public

service in Enugu state. Corruption and poor service delivery are the major

broad areas SEEDS reforms are targeting to revitalize in the on-going public

service reform programmes in Enugu State. From our data analysis, the

respondents identified corruption and poor service delivery as two

challenges militating against the SEEDS reform objectives in the Enugu

State civil service and public service generally.

4.2 Findings

Findings were deducted from the data presentation above, and these

findings are presented below.

Table 4.1 analysis shows that the SEEDS is a civil service reform which

aims at building a responsive and efficient civil service in Enugu State. Also

from table 4.2, 4.3, and 4.4, it is observed that SEEDS key areas of reforms

include, budget and financial management, public accountability and

transparency, human resources management, operations management system

parastatal reforms and management, and anti-corruption. Furthermore,

evaluation of the SEEDS reform programmes are making significant impact

in the operational efficiency and effectiveness of the Enugu State civil

service as revealed in table 4.5, 4.6, 4.7, 4.8, and 4.9. Evidence from these

tables showed that some programmes which are implemented under the on-

going SEEDS civil service reforms in Enugu State are yielding positive

results especially in anti-corruption, public accountability, budget execution,

public procurement, and performance improvement in service delivery.

Table 4.10 reveals that SEEDS reform in down-sizing the civil service

has some effects on the civil servants job security and generally on human

resource management.

Observation from table 4.11 shows that there is evidence of high

incidence of bureaucratic corruption and poor service delivery. Therefore,

the efficient performance of the Enugu State civil service has been

constrained by corruption and poor service delivery as shown in table 4.12,

4.13, 4.14, 4.15 and 4.16.

Table 4.17 and 4.18 revealed that the assessment of human resources

management in the civil service in Enugu State has not improved

strategically as a motivator to enhance greater productivity and efficient

performance in the civil service. Staff training and the provisions of welfare

schemes for the civil servants in the state have not been received adequate

attention by the government and this has affected service delivery of the

civil servants. Furthermore, lack of political will, sustainability problems,

corruption and poor service delivery orientation have been identified as

some of the challenging factors militating against SEEDS development

programmes in the Enugu State Civil Service as shown in table 4.19.

4.3 Discussion of Findings

The interpretations and observations based on the data presented with

respect to the problem under investigation are discussed below.

SEEDS as we have observed is a civil service reform in Enugu State

which gear towards creating a responsive and efficient civil service. The

evolution of the SEEDS reform in the Enugu State civil service came as a

result of the search for a more responsive pubic service. The objectives of

the SEEDS reforms in the state civil service are targeting towards the

improvement of budget execution, due process, public procurement, efficient

service delivery, and to fortify the efforts on campaign against corruption or

corrupt practices. Under the on-going SEEDS reforms in the Enugu State

civil service, one important landmark as we noted from the literature review

has been the establishment of the Enugu State Council on Reform (ESCR)

and the Bureau of Public Service Reforms (BPSR). Adeyemo (2009:69) and

Oladipo (2009:368) observed that the on-going reforms in the Nigerian

public service focused mainly on the civil service which they described as

the agent of national development. This is because the civil service is that

part of the public service which takes responsibility for planning, advising

and implementing policies and programmes in government ministries and

departments.

The implementation of the reform programmes has significantly

recorded some positive results in improving the service delivery of the civil

service. The improvement as we observed has been made possible through

the reforms programmes on Budget Monitoring and Price Intelligence

(BMPI) which is responsible for reviewing the budget for every ministry and

department and ensure prudent expenditure as well as accountability in

managing public funds. Other programmes under the SEEDS reforms in

civil service in Enugu State which have contributed in improving the

performance of the civil service are the Performance Improvement Bureau

(PIB), the Due Process Act, the Public Procurement Bill, Anti-Corruption

Campaign, and the Service Delivery Initiative. The Performance

Improvement Bureau (PIB) assists in checking the out-put performance of

government ministries and departments as well as other agencies of public

service. On the other hand, the Due Process Compliance Principle is

mechanism which comprises instruments aimed at enforcing compliance

with due process in budgeting, procurement and expenditures by all

categories of civil service and public service in general. It is intended to

minimize corruption and reduce unproductive spending in the state public

service. Anti-corruption is another reform programme which is vigorously

pursued under the SEEDS public service reforms. SEEDS (2004:59) stresses

that “our goal is to fight corruption to a standstill, to effectively achieve this

purpose, serious anti-corruption policies have been put in place to infuse

strong moral and ethical values in the people. Government has also

established various relevant institutions to tackle corruption and promote

transparency and accountability”. This has necessitated the establishment of

the Enugu State workers code of conducts and due process mechanisms in

checkmating the high incidence of corrupt practices in the state civil service.

Observations from Enugu state civil service showed that these programmes

have contributed in reducing bureaucratic corruption and misappropriation

of public funds usually witnessed in the civil service. The implication of this

observation in the Enugu State civil service has been improvement in the

service delivery of the state civil service. Administratively, these

programmes have improved the operational efficiency of the Enugu state

civil service though provision of quality service delivery has not been

achieved generally in the state civil service.

The study also observed that the service delivery or the performance

of the civil service has been strengthened through the new staff training and

development programmes introduced under the SEEDS reforms in the state

civil service. The staff training aims at service-wide capacity-building

through the government training institutions such as the Enugu State higher

institutions, Centre for Management Development (CMD), the Enugu State

Civil Service Training Centre, Industrial Training Fund, and private training

agencies. In this regard, the Enugu State Civil Service Commission is

specifically in charge of the training and development of the civil servants.

However, observations from the table presentation showed that human

resource management in the civil service is still inadequate to render quality

service delivery. On the aspect of staff training and development maximum

effort has not been made to cover all the categories of civil servants. The

implication of this has been low productivity of service by the civil servants

and most time such can result to wastage of resources which decline service

delivery.

In the area of motivating the civil servants through the monetization

of fringe benefits, the implementation has not been effectively enforced in

the state civil service. This as matter of fact contributes to encourage

persistence of high incidence of corrupt practices in the Nigerian civil

service. Therefore, corruption has continued to remain a major challenge to

the SEEDS reform in the Enugu State civil service. Under this scenario, the

orientation towards quality service delivery is always an illusion in the

Enugu State and most time generally in the Nigerian civil service following

inadequate staff motivation by the management (government). This as the

study found out or observed is due to poor political will and inadequate

sustainability measures to implement reform directives and agenda in

Nigeria. In other words, it can be argued that the political will of the

president, the Governors, the Ministers, the Commissioners and Local

Government Chairmen to implement the recommendations of public service

reforms in Nigeria do not always stand strong to sustain reform programmes.

CHAPTER FIVE

SUMMARY, CONCLUSION AND RECOMMENDATIONS

5.1 Summary

This study has attempted the assessment of the effects of the State

Economic Empowerment and Development Strategy (SEEDS) reforms in

the development of public service in Enugu State public service using

Ministry of Education and Finance (1999-2007) as case study. The study

critically reviewed the impact of SEEDS reform programmes in the civil

service in Enugu State. In addition, the study covered the current

programmes of the SEEDS civil service reforms in Enugu State, the effects

and achievements and litany of problems or challenges facing the

programmes from realizing the raison d‟etre or objectives in the state civil

service.

The study however maintains that SEEDS as a civil service reform

aims at restoring efficiency, effectiveness and result orientedness of the

Enugu State civil service. The resultant effects of SEEDS reform

programmes in the civil service have strengthened administrative capacity in

the areas of due process, transparency and accountability and above all

service delivery of the civil service. In other words, it is important to stress

that the resultant effects of SEEDS reforms on civil service so far, have

recorded some success in anti-corruption and service delivery. It is equally

important to stress that evidence from the respondents‟ answers and our

literature review showed that corruption and other unethical behaviours still

persist to decline service delivery of the civil service in Nigeria.

Therefore the major objective of carrying out this research is to assess

the effects of SEEDS reforms in the development of civil service in Enugu

State, but for more emphasis, the specific objectives are; to ascertain

whether the effects of SEEDS development programmes have reflected on

the operational effectiveness and efficiency or performance of the public

service in Enugu State; to identify the constraints militating against the effort

of the SEEDS on the development of public service in Enugu State and to

proffer solutions towards making public service in Enugu State and Nigeria

in general more efficient and responsive.

The study delves into the views, opinions and ideas of scholars to

present a holistic investigation on the subject matter. The study inclined

itself to the public management theory. The theory proposes that public

sector organizations should adopt managerial principles of private-sector in

order to achieve operational efficiency in management. In the methodology,

the study utilized both primary and secondary sources of data collection. The

use of simple percentage and chi-square were used to analyze the data

collected. However, the critical examination of the problem under review

made the following findings:

(i) The State Economic Empowerment and Development Strategy

(SEEDS) contains both public service and economic reforms. As a

public service reform, the key area includes; budget and financial

management, accountability issues, human resource management,

operation system as well as parastatal management reforms. The

core area of economic reform under SEEDS includes; privatization

of state owned enterprises.

(ii) The primary objective of SEEDS is to create a responsive and

efficient public service in Enugu State. Therefore, the major focus

of the SEEDS development programmes are on the Enugu State

civil service.

(iii) SEEDS development programmes in the Enugu State civil service

are making significant effects in the operational effectiveness and

efficiency of civil service.

(iv) SEEDS reform programmes on anti-corruption, public

procurement, due process and budget execution and management

have contributed in improving the service delivery in the Enugu

State civil service.

(v) Despite the contributions of the SEEDS development programmes

in the performance of Enugu State civil service, bureaucratic

corruption has continued to challenge the efforts of the reform

programmes on Due process Act, Public Procurement Bill, Budget

Monitoring and Price Intelligence (BMPI), Performance

Improvement Bureau (PIB) and Service Delivery Initiatives (SDI).

(vi) Poor human resource management in the Enugu State civil service

has contributed to the occurrence of high incidence of corruption

and poor service delivery in the civil service.

(vii) Poor political will, sustainability problems, corruption, and poor

service delivery orientation and capacity are among the key

challenging factors militating against SEEDS development

programmes in the Enugu State civil service.

5.2 Conclusion

In the study so far, we have been able to appraised the current reform

under the State Economic Empowerment and Development Strategy

(SEEDS) in Enugu State public service from 1999-2007 using Ministry of

Education and Finance. We noted that prior to the current administration;

successive governments in Nigeria had implemented one form of reform or

another in the civil service with the aim of making it efficient and effective.

Yet, the civil service over the years has been criticized as inefficient and

ineffective. Although, SEEDS reform programmes in the Enugu State civil

service have recorded some success in the operational efficiency of the civil

service, there are still some chanllenges which limited the effort in the

development of the state civil service. These chanllenges as we observed are

corruption, managerial waste, poor transparency and accountability as well

as poor service delivery capacity in the public service.

From our investigation, SEEDS reform programmes in the Enugu

State civil service are significantly recording positive results in improving

the state civil service towards a responsive and goal-oriented one. Findings

showed that SEEDS reform programmes on Due Process, Public

Accountability and Transparency, Budget Monitoring and Price Intelligence

(BMPI), Performance Improvement Bureau (PIB), Service Delivery

Initiative (SDI), and Anti-corruption campaign have been improved

ministrial service delivery.

This study emphatically makes bold to state that SEEDS is a unique

reform programme for Enugu State civil service with a new coordinated

approach. In its contents, SEEDS is a reform strategy quite different from

the conventional plans of the past civil service reforms in Enugu state. Its

thrust is clear and focused.

5.3 Recommendations

Based on the findings of the study and taking cognizance of the

importance of the subject matter under review, the researcher is inclined to

make the following recommendations:

1. To promote the efficiency of the Enugu State civil service, there is

need to ensure adequate human resource management in the civil service.

Government should make staff training and development in the civil

service a priority. This is important because manpower is the most valuable

resource in organizational management. Therefore, adequate staff training

programmes should be introduced under the on-going SEEDS reforms in

the civil service in Enugu State. Some mechanisms such as Staff

Performance Review, Excellent Work Culture Movement, Total Quality

Management and Service Delivery Orientation and Capacity should be the

target objectives of the training programmes.

2. Also there is every need to improve the implementation of the

Monetization of Fringe Benefits in both federal and state civil service in

order to ensure that the civil servants are well motivated to improve their

performance and service delivery.

3. Efforts should be made in sustaining the capacity-building of the civil

service through the programmes on Service Delivery Initiative (SDI),

Performance Improvement Bureau (PIB), Budget Monitoring and Price

Intelligence (BMPI), Anti-corruption and Due Process campaign under the

on-going SEEDS reforms. The sustainability of these programmes will

help in improving the operational efficiency of the Enugu State civil

service because of their emphasis on new management strategies for

service delivery.

4. Since corruption has remained an intractable problem that has

constrained efforts of reform development programmes in the Nigerian

civil service. The need to strengthen the fight against corruption must be a

top priority of the SEEDS reforms in civil service. Internal mechanisms

should be institutionalized to checkmate corrupt practices in the civil

service. The measure should include the creation and strengthening of anti-

corruption agencies, creation of other institutional platforms for

maintaining ethical standards, initiating complementary reforms to combat

corruption and promote transparency and accountability.

5. Improvement of modern facilities such as Information

Communication Technologies (ICTs), constant power supply,

transportation, as well as other office equipment which would help to

improve quality service delivery of the civil service. Also the provisions of

these facilities will go a long way in putting the training acquired by the

civil servants into effective use.

6. Last but not the least is that the political will in implementing the reform

programmes in the civil service should be strengthened in order to achieve

the reform objectives in the Nigerian civil service in general. Political

leaders must show optimum willingness and commitment to the reform

directives as contained in reform white paper to effectively reposition the

Nigeria civil service as veritable agent of national development.

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White, Oliver Campbell (2000) “Privatization in Africa” Facing up to the

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JOURNALS

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of Administration Vol. xiii No.3 and 14 April/July.

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Anekwe, C. (2005) Sustaining Public Service Reform: Performance

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Asogwa, M.N.O. (2005) “Possible Areas and Strategies for Administrative

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Oronsaya, A.O. (1984) “Pathologies of the Nigerian Bureaucracy”.

Nigerian Journal of Administrative Science, Vol. 1 No. 1 January

1984.

Phillips Dotun, (2004) “The Civil Service Reforms and the Civil Service

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NEWS PAPERS

Akabogu, C. (1988) “Civil Reforms or Regression” National Concord,

Friday, January 22.

Bagshaw, N. (2005) Two Years of Reforms: So Far, Still Far, Daily

Independent June 3, 2005.

Duke, Chijioke (1985) The Nigerian Civil Service. Owerri: Imo Newspapers.

Nweze, Kingsley (2005) “Due Process in Procurement Reforms” This Day,

June 22.

Yayale, A. (2001) “We Will Soon Have a Better Public Service” Special

Report, The Guardian, 24th May.

SEMINAR PAPERS

Abdullah, S. A. (2003) “Public Service Par Execllence: Service to

Humanity” Being a Public Lecture Delivered During a Memorial

Lecture in Honour of Late Alhaji Umuru Audi, GAMJI MEMBERS

Association, Minna, 1st March, 2003.

Adegoroge, G. (2004) “Vision to Action: Background Document on Current

Public Service Reforms in Nigeria”. A Discussion Paper Presented at

the Retreat for Federal Permanent Secretaries, ASCON, Badagry, 5th

-

8th

August.

Adegoroye, G (2005) “Mainstreaming Ethics and Professionalism in the

Public Service: The Nigerian Example”. Test of Paper Presented at

the Conference on the African Charter and Related Reforms,

Swakopmund, Namibia, 3-7 October.

Adegroroye G. (2005) “Evolution of the On-going Public Service Reform

Initiatives”. Text of a Paper Presented at the 18th National Workshop

for Chief Executives of Public and Private Sector Enterprises in

Nigeria, ASCON, Badagry, 28th

July.

Buba- Ahmed, H. (2004) “Public Service Reforms: Limitations and

Challenges of the Civil Service” in a Paper Presented at the Retreat

for Permanent Secretaries, ASCON, Topo- Badagry 5th

- 8th

August.

Ekpenkhio, S.A. (2003) “Public Sector Procurement Reforms: The Nigerian

Experience” Paper Presented at the Regional Workshop on

Procurement Reforms and Transparency in Government Procurement

for Anglophone African Countries Held in Tanzania, 16 January.

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Paper Presented at the Centre for International Development at KSG,

Harvard University.

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Implications for Third Republic”, Paper Presented at National

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Challenge of the Third Republic”. Paper Presented at National

Council on the Transition to Civil Rule. Univeristy of Jos, May 16-20.

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the Nigerian Civil Service: A Radical Exposition” Paper Presented at

the National Conference on three Decades of Public Administration in

Nigeria, Jos University of Jos, November 20- 24.

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Strategies of National Economic Empowerment and Development

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Secretaries, ASCON, Badagry, 5th

– 8th

August 2004.

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Paper Presented at Senior Policy Seminar on Development, Ibadan

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2001/86.

Soludo, C. C. (2006) “Beyond Banking Sector Consolidation in Nigeria”.

Paper Presented at the Global Banking Reforms; 29 March. 2006, the

Dorchester Hotel London.

GOVERNMENT DOCUMENTS

Enugu Sate Government (2007) Performance Improvement Bureau (Office

of the Head of Service). Enugu State Government Press.

Enugu State (2007) Code of Conduct for Employees. Enugu State Nigeria

Government Press.

Enugu State Government (2004) State Economic Empowerment and

Development Strategy (SEEDS). Enugu State Government Press.

Federal Government of Nigeria (2004) National Economic Empowerment

and Development Strategy (NEEDS), National Planning Commission,

Abuja.

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Commission Main Report (1974) Lagos: Federal Ministry of

Information, Printing Division.

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Implementation of the Nigerian Civil Service Reform. Lagos: Federal

Ministry of Information, Printing Division.

Federal Republic of Nigeria (1997) (Ayida) Report of the Review Panel on

the Civil Service (1997). Abuja: Federal Ministry of Information,

Printing Division.

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Review Panel on the Civil Service (1997). Abuja, Federal Ministry of

Information, Printing Division.

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Federal Nigeria, Lagos; Government Press.

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Commission: Federal Ministry of Information, P. 13.

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Commission: Lagos; Ministry of Information.

Nigeria (1974) The Civil Service Review Commission: Lagos; Federal

Ministry of Information.

Nigeria (1988) Decree No. 43, Civil Service Reorganization Decree, 1988

Official Gazette, Vol. 75. No 79.

INTERNET MATERIAL

Ede, N. A. (2005) “Due Process in Procurement Reforms”

htt://allafrica.com. Nigeria. Lagos: Longman.

Obasanjo, O. (2003) “Reform Programme Central to 2004 Budge”,

http://www.nigeria village sequre/.com.

Obasanjo, O.(2003) Reform for Stability and Growth, Address at the Retreat

for Honourable Ministers and Permanent Secretaries, Nicon Hilton

Abuja. July 18 p. 20, 2003.

www.nigeria.gov.ng/Reformforstabliity.aspx

QUESTIONNAIRE

Department of Public Administration

And Local Government,

Faculty of Social, Sciences,

University of Nigeria,

Nsukka.

Dear Respondent,

This questionnaire is part of a research project on “Assessing the

Effects of the State Economic Empowerment and Development Strategy

SEEDS in the Development of Public Service in Enugu State: A case study

of Ministry of Education and Finance” being carried out as part of the

requirement for the award of the Master of Science (M.Sc) Public

Administration.

You have been selected as a respondent because of your awareness on

the SEEDS development programmes in the Enugu State Public Service.

Please, answer the questions that follow honestly. All information

supplied would be used in confidence and solely for academic analysis.

Thanks for the anticipated co-operation.

Nweze, Vitalis .O.

PG/ M.Sc/08/50064

PALG, UNN

SECTION A (PERSONAL DATA)

Please provide the following information

1) What is your sex?

(a) Male (b) Female

2) Your age bracket is?

(a) Below 18 years (b) 18 – 25 years (c) 26 – 35 years

(d) 36 years and above

3) What is your academic qualification?

(a) WASC/GCE/SSCE/NECO (b) NCE/HND/Degree

(c) Others specify ------------------------------------------------------------

4) What is your marital status?

(a) Single (b) Married (c) Widow (d) Widower

5) Your religion is?

(a) Christianity (b) Muslim/ Islam (c) Traditionalist

6) Length of services in the ministry is?

(a) Below 10 years (b) Above 10 years

SECTION B (QUESTIONNAIRE DATA FOR ENUGU STATE CIVIL

SERVANTS)

7) Do you agree that the State Economic Empowerment and Development

Strategy (SEEDS) is public/civil reform?

(a) Strongly Agree (b) Agree (c) Undecided

(d) Disagree (e) Strongly Disagree

8) What would you consider the major objectives for establishing SEEDS in

Enugu State?

(a) Public service reforms/ development (b) Strengthening Economics

development (c) Enhancing the viability of government work

(d) Revival of public accountability and transparency

9) Which of the objective appeals to you most? Please specify in the box

provided --------------------------------------------------------------------

10) Please mention four reasons why you chose your option

a) -------------------------------------------------------------------

b) ------------------------------------------------------------------

c) ------------------------------------------------------------------

d) -----------------------------------------------------------------

11) Do you agree that SEEDS is a government development plan to

strengthen and provide a responsive public service in Enugu State?

(a) Strongly Agree (b) Agree (c) Undecided

(d) Strongly Disagree

12) Does SEEDS has any reform/ development programme for Enugu State

Civil Service? If yes please mention them

a) ---------------------------------------------------------------------

b) ---------------------------------------------------------------------

c) ---------------------------------------------------------------------

d) --------------------------------------------------------------------

13) Do you agree that SEEDS reform programmes for civil service in Enugu

State are making significance impact in the service?

(a) Strongly Agree (b) Agree (c) Undecided

(d) Disagree (e) Strongly Disagree

14) Do you agree that SEEDS has contributed positively in the operational

effectiveness and efficiency of the public/ civil service in Enugu State?

(a) Strongly Agree (b) Agree (c) Undecided

(d) Disagree (e) Strongly Disagree

15) Do you agree that the evaluation of the effects SEEDS on the

development of public service in Enugu state is only measurable in the

efficiency and effectiveness in the implementation of SEEDS?

(a) Strongly agree (b) Agree (c) Undecided

(d) Disagree (e) Strongly Disagree

16) Do you agree that the anti- corruption and public procurement

programmes of SEEDS have contributed in improving the service delivery

in Enugu state public service?

(a) Strongly Agree (b) Agree (c) Undecided

(d) Disagree (e) Strongly Disagree

17) Do you agree that the Due Process of SEEDS Reform has effectively

contributed to improve the discharge of services in Enugu state civil service

especially in the Ministry of Education and Finance?

(a) Strongly Agree (b) Agree (c) Undecided

(d) Disagree (e) Strongly Disagree

18) Has the effects of down- sizing the civil service under the SEEDS

reforms affected the civil servants in any way?

(a) Strongly Agree (b) Agree (c) Undecided

(d) Disagree (e) Strongly Disagree

19) Do you agree that high incidence of bureaucratic corruption and poor

service delivery, are among the key factors militating against the efforts of

SEEDS in the development of public service in Enugu state?

(a) Strongly agree (b) Agree (c) Undecided

(d) Disagree (e) Strongly Disagree

20) Do you agree that the performance of Enugu state public service

generally has been efficient?

(a) Strongly Agree (b) Agree (c) Undecided

(d) Disagree (e) Strongly Disagree

21) How would you rate the service delivery of the public service in Enugu

state?

(a) Highly Satisfied (b) Satisfied (c) Undecided

(d) Dissatisfied (e) Highly dissatisfied

22) How would you rate the state of public accountability and transparency

in public service in Enugu state?

(a) Highly Satisfied (b) Satisfied (c) Undecided

(d) Dissatisfied (e) Highly dissatisfied

23) How would you rate the bureaucratic corruption in the public service in

Enugu state?

(a) Highly Satisfied (b) Satisfied (c) Undecided

(d) Dissatisfied (e) Highly Dissatisfied

24) How would you assess the human resource management in public

service?

(a) Highly Satisfied (b) Satisfied (c) Undecided

(d) Dissatisfied (e) Highly Dissatisfied

25) Are you satisfied with the provisions of welfare schemes for the civil

servants in Enugu state especially in the Ministry of Education and Finance?

(a) Highly Satisfied (b) Satisfied (c) Undecided

(d) Dissatisfied (e) Highly Dissatisfied

26) What would you consider as the challenging factors on SEEDS

development programmes in public service in Enugu state? Please mention

them as you can identify.

a) ------------------------------------------------------------------

b) ------------------------------------------------------------------

c) ------------------------------------------------------------------

d) ------------------------------------------------------------------

27) What would you proffer as solutions to overcome these challenges?

Please mention them.

a) ---------------------------------------------------------------------

b) ---------------------------------------------------------------------

c) ---------------------------------------------------------------------

d) --------------------------------------------------------------------