Strengthening institutions and organizational
capacity:
How the Executive in other countries ensures necessary skills
Prof. Rajiva Wijesinha, MP
The manner in which our Executive is constituted ensures that
administrative or professional capacity are not taken seriously when
portfolios are allocated. Of course many Members of Parliament have
skills that will allow them to contribute to formulating policy and
making decisions, but that is not a prerequisite. Given to the need to
continue in Parliament by ensuring popularity in their electorates,
Ministers naturally see their constituency responsibilities as more
important than the claims of the ministerial responsibilities they are
given.
I suppose this is a necessary part of the Westminster system, but in
Britain and other countries where that system continues, there are
systems to ensure that capable people with understanding of the
ministries to which they are appointed can also be selected.
Civil servants
Most countries having a Westminster style system, of allocating
portfolios to Parliamentarians, have a second chamber to which proven
administrators can be appointed – as with for instance Manmohan Singh or
Kapil Sibal in India. In addition, on a first past the post system,
competent people can be allocated safe seats, and do not have to worry
unduly about electoral considerations in fulfilling their ministerial
responsibilities. And some countries such as Thailand have gone beyond
this, in allowing for portfolios to also be filled by those with proven
executive capacity without them having to enter Parliament.
Manmohan Singh |
The other factor that has ensured reasonably good government under
the Westminster system of allocating portfolios to Parliamentarians,
even when such Parliamentarians have no administrative or conceptual
skills, is the existence of a professional civil service. Though the
manner portrayed in ‘Yes, Minister’ of how politicians are controlled is
exaggerated, administrators in Westminister style democracies function
in accordance with established rules of procedure, and their
professionalism is respected. Anyone dealing with Indian bureaucrats
knows how skilled they generally are, and the training they undergo,
with regular refresher courses, justifies the authority they wield.
This does not mean they make decisions contrary to the wishes of
their political masters. As I would tell my Minister when I was a
Secretary, it was my business to do what he wanted. But it was also my
business to find out legitimate ways of doing what he wanted, and to
refrain from doing anything that was wrong. I was fortunate in that I
had a very civilized Minister who understood the position.
But that is not always the case, and the political imperatives of
Ministers who feel they have to satisfy the demands of large
constituencies make their demands less easy to resist. It is also more
difficult for Civil Servants to stand firm when they know that their
peers give in readily.
One way of ensuring that standards are maintained is through better
training, and opportunities for administrators also to meet and exchange
ideas and establish systems of ensuring conformity with principles as
well as national interests. But our training systems have gone by the
board, and we do not ensure regular updating.
Monitor performance
Recently I was reproached by one of the new graduate trainees who
told me that their time was being wasted, because they had not been
given a satisfactory grounding in the work they were supposed to do.
Indeed in many cases they did not have sufficient work to do, and it
seems the scheme that was implemented had no objective except simply
giving jobs to the unemployed – or rather those thought to be
unemployed, because I find that some employed in the private sector gave
up their positions for what they thought was the convenience of a
pensionable government position that did not demand too much effort.
UK Parliament |
Many have ended up – I should note that my experience is limited to
those in the North, and perhaps things are different elsewhere - being
asked to collect statistics about Grama Niladhari Divisions. But I saw
no evidence of analysis of what they found, and the formulation of plans
to improve things. Some of the graduates certainly seemed capable, and
worked systematically, but I did not see systems in place to ensure
follow up of their work.
While then several felt they did not have enough to do, there were
many cadre vacancies in the Divisions in fields where much more
concentrated effort is needed.
Even though the qualifications required for permanent positions in
fields such as Child Rights Protection or Women Development were
lacking, it would have made sense to instruct Divisional Secretaries to
appoint the trainees they were given to at least look after the
responsibilities of such officials. But since the responsibilities too
are not clearly laid down, and there is no system in place to monitor
performance, this opportunity too was missed.
Ministry Secretaries
Unfortunately there is little coordination at the higher levels of
government, where policy should be discussed and efficient and effective
means of implementation devised. For this purpose there should be
regular meetings of Ministry Secretaries, but I found that these were
sporadic, at the time I was a Secretary, and in any case largely
useless, given the large numbers involved.
Even if we cannot soon move to the reduction in the size of the
Cabinet that is desperately needed, we should set up a Committee of the
principal Ministry Secretaries to restructure the administrative system
and ensure the development of the skills needed at all levels.
Remarkable capacity
This should properly be the responsibility of a Ministry of Policy
and Plan Implementation, but unfortunately that ministry was abolished
in 2010.
Some of its tasks were given to the Finance Ministry, but with the
Secretary to that Ministry also having to be Secretary to the Ministry
of Economic Development, the conceptualization with regard to
administration that was needed went by the board. And even though we
think we can survive, because of the remarkable capacity of some
individuals, we must realize that systems need to be put in place to
ensure continuity, whatever the calibre of those in responsible
positions at any given moment. |