ASOGWA, MATHIAS O.

PG/Ph.D/07/48107

PERFORMANCE MANAGEMENT OF CIVIL SERVICE IN ENUGU STATE, NIGERIA, 1999 - 2011

FACULTY OF SOCIAL SCIENCE

DEPARTMENT OF PUBLIC ADMINISTRATION AND LOCAL GOVERNMENT

Paul Okeke

Digitally Signed by: Content manager’s Name DN : CN = Webmaster’s name O= University of Nigeria, Nsukka OU = Innovation Centre

2

PERFORMANCE MANAGEMENT OF CIVIL SERVICE

IN ENUGU STATE, NIGERIA, 1999 - 2011

By

ASOGWA, MATHIAS O. PG/Ph.D/07/48107

A THESIS PRESENTED TO THE DEPARTMENT OF PUBLIC ADMINISTRATION AND LOCAL GOVERNMENT,

UNIVERSITY OF NIGERIA, NSUKKA IN FULFILLMENT OF THE REQUIREMENTS FOR THE AWARD OF

DOCTOR OF PHILOSOPHY DEGREE (Ph.D) IN PUBLIC ADMINISTRATION (HUMAN RESOURCES MANAGEMENT OPTION)

SUPERVISOR: PROF. FAB. O. ONAH

SEPTEMBER, 2014

3

CERTIFICATION

This is to certify that Asogwa, Mathias Oheja, a postgraduate

student of the Department of Public Administration and Local

Government, University of Nigeria, Nsukka with registration

Number PG/Ph.D/07/48107, has satisfactorily completed the

requirements for the award of Doctor of Philosophy Degree (Ph.D) in

Public Administration (Human Resources Management Option) of

this University.

This Research work is original, and has not been presented

previously for the award of any diploma or degree of this or any

other University.

___________________________________________ Asogwa, Mathias Oheja

Student

___________________________ Prof. Fab. O. Onah

Supervisor

4

APPROVAL PAGE

This thesis has been approved on behalf of the Department of

Public Administration and Local Government, University of Nigeria,

Nsukka, Nigeria.

By

___________________________ __________________________ Prof. Fab. O. Onah Dr. (Mrs.) S. U. Agu Supervisor Head of Department

__________________________ __________________________ Prof. I. A. Madu External Examiner

5

DEDICATION

This research work is dedicated to the Almighty God who

saved my life during this academic pursuit.

6

ACKNOWLEDGEMENT

So many people are worthy of mention for their invaluable

contributions to the successful completion of this work. I sincerely

thank my Supervisor, Prof. Fab. Onah for his fatherly care and

encouragement to me in carrying out this project.

I also acknowledged Prof. Chikelue Ofuebe of the PALG

Department for discussing this work. I sincerely acknowledged the

motherly care of the present Acting Head of

Department, Dr. (Mrs.) S. U. Agu for her care and encouragement. I

am equally grateful to all the lecturers in the Public Administration

and Local Government Department that had contributed immensely

to this work.

May I thank my bosom friend and adviser, Mr. Louis Ezema

for standing by me when I needed him for a help. Worthy of

mention include: Mrs. Theresa Okafor, Amaka Ugwuta, Obinna

Ugwu, Ugwu Jacinta, and other PALG non-tutorial staff. Tony

Okolie, a colleague in the PALG Department had been of great help

to me.

My thanks go to the following staff of the Library Section: Mr.

M. Osai, Mr. Okoye Stanley, Mrs. Onoh Chioma, Mr. Ezema Jonas

and a host of others. Mr. Agboeze Martin (Mazi) is a brother who

had to forgo his comfort to give a helping hand. May I remember

7

Mr. Joseph Ezema (Ogbuehi) and Mr. Christopher Ezema Ezenwata

who are colleagues and bosom friends – I thank them all.

My good friend Dr. Romanus Ezike is to be mentioned here as

he gave me the ‘Ladder’ that helped me when the tunnel was dark.

Dear, I cannot repay you but the Lord can. I sincerely thank my

wife and children for their patience throughout the period of this

pursuit. I pray the Lord to reward all of you abundantly.

Dr. Iwundu, I. E. had been a motivator; he pushed the vehicle

that carried me when the road was rough. The Lord is generous in

his blessings and your portion is great there.

To my parents who had to starve at times to train me. Late

Christopher Asogwa, you are a father indeed. May the Lord accept

your soul in His paradise. Amen.

I sincerely thank Mr. Asadu Patrick for typing all my works

especially this thesis. May the good Lord reward you abundantly.

Those I cannot mention, your own blessings are many. May

the good Lord who knows how to bless shower his blessings upon

you. Amen.

Asogwa, M. O. PG/Ph.D/07/48107 University of Nigeria Nsukka September 2014

8

TABLE OF CONTENTS

Title page … … … … … … … … … i

Certification … … … … … … … … ii

Approval page … … … … … … … … iii

Dedication … … … … … … … … … iv

Acknowledgement … … … … … … … v

Table of Contents … … … … … … … … vii

List of Tables … … … … … … … … x

List of Figures … … … … … … … … xii

Abstract … … … … … … … … … xiii

CHAPTER ONE: INTRODUCTION … … … … … 1

1.1 Background to the Study … … … … … 1

1.2 Statement of the Problem … … … … … 6

1.3 Objectives of the Study … … … … … … 12

1.4 Significance of the Study … … … … … 13

1.5 Scope and Limitations of the Study … … … … 14

CHAPTER TWO: LITERATURE REVIEW … … … … 16

2.0 LITERATURE REVIEW … … … … … … 16

(a) Historical Development of the Civil Service in Nigeria … 16

(b) Contending Issues in Performance Management of Enugu State Civil Service … … … … … 21

(c) Enhancement of Performance Management of Enugu State Civil Service … … … … … … 44

(d) Barriers to Performance Management of Civil Service … in Enugu State … … … … … … … 54 (e) Remedies to the Challenges of Performance Management of Enugu State Civil Service … … 61

2.1 Gap in Literature … … … … … … 74

9

2.2 Theoretical Framework ... … … … … 74

2.4 Justification for the Adoption of the Theory … … 77

2.5 Hypotheses … … … … … … … … 80

2.6 Operationalisation of key Concepts … … … … 80

CHAPTER THREE

3.0 STUDY AREA AND RESEARCH PROCEDURE … … 83

3.1 Study Area: Enugu State … … … … … 83

3.2 Research Procedure … … … … … … 91

3.2.1 Research Design … … … … … … … 91

3.2.2 Sources of Data Collection … … … … … 91

3.2.3 Population of the Study … … … … … … 92

3.2.4 Sample and Sampling Procedures … … … … 94

3.2.5 Method of Data Collection … … … … … 95

3.2.6 Reliability and Validity of Instruments … … ... 96

3.2.7 Method of Data Presentation and Analysis … … 96

CHAPTER FOUR: DATA PRESENTATION, ANALYSIS AND FINDINGS … … … … … 98

4.1 Data Presentation and Analysis … … … … 98

4.2 Findings … … … … … … … 117

CHAPTER FIVE: DISCUSSIONS … … … … 122

CHAPTER SIX: SUMMARY, RECOMMENDATIONS AND CONCLUSION … … … … 153

6.1 Summary … … … … … … 153

6.2 Recommendations … … … … … 155

6.3 Conclusion … … … … … … 157

BIBLIOGRAPHY … … … … … … 159

APPENDICES ix

10

APPENDICES

1 INTERVIEW SCHEDULES … … … … … 172

2 SALARIES AND WAGES BULLETIN … … … … 177

3 APPOINTMENTS OF JUDGES IN ENUGU STATE

AND THEIR JUDICIAL DIVISIONS … … … … 178

4 ENUGU STATE GOVERNMENT EXECUTIVE

ORGANISATIONAL STRUCTURE … … … … 179

5 T-TEST SUMMARY RESULT … … … … … 180s

11

LIST OF TABLES

Table 1: Civil Service Reforms in Nigeria 1934 1994 … 20 Table 2: Types of “Forced Ranking and how it works … 31 Table 3: Nigerian Federal Ministries indicted by Vincent Azie Panel (2003). … … … 60

Table 4: Population of Enugu State Ministries and parastatals … … … 93

Table 5: Sample of Ministries, of Enugu State Civil civil service … … … … … … 94

Table 6: Sex distribution of the respondents … … … 98

Table 7: Status distribution of staff … … … … 99

Table 8: Marital status distribution of respondents … 99

Table 9: Distribution of educational qualification of respondents … … … … … … 100

Table 10: Age distribution of respondents … … … 100

Table 11: Respondents’ Opinion towards training and retraining of staff, promotions, and adequate housing and car loans … … … … … 102

Table 12: Respondents’ on the obstacles associated with workers Performance Management appraisal which impede Performance Management on Civil Service in Enugu State … … … 106

Table 13: Respondents’ Opinion on the hindrances that impede measures employed to engender Performance Management of civil service in Enugu State. … … … … … 112 Table 14: Field Data on Evaluation of Training, retraining, Promotion, housing/car loans, motivation and Competitive pay … … … … … 126

Table 15: Summary of Results of Pilot performance Evaluation testing on four selected Ministries, Departments/Agencies in Enugu State … … 130

12

Table 16: Field Data on Obstacles associated with workers’ Performance management appraisal … … … 133

Table 17: Field Data on hindrances that impede on the measures Employed by Enugu State government to engender Performance management of civil service … … 140 Table 18: Field data on the measures that can be employed to engender performance management in Enugu State civil service. 143

13

LIST OF FIGURES Figure 1: Graphic view of the difference between Performance Appraisal and Management … … 28

Figure 2: Performance Management cycle … … … 33

Figure 3: Performance Management System Model … … 46

Figure 4: Performance Concentric Model … … … 57

Figure 5: Map of Enugu State … … … … … 90

14

ABSTRACT

This study is an investigation of performance management in Enugu civil service 1999 – 2011. At a close watch of the performance position of the service, one cannot help posing a number of questions on its main problem areas of employee training and development, appraisal and performance. The questions are (1) what are the problems of performance management of civil service in Enugu State? (2) Did performance appraisal impede performance management of civil service in Enugu State (3) what measures were employed to engender performance management in Enugu State civil service. Based on the above research questions, the study tested the hypotheses that (1) performance management was significantly enhanced through training and retraining of staff, promotions, high salaries and granting of housing and car loans. (2) Staff appraisals contributed positively towards performance management in Enugu State civil service. (3) There existed measures that were be employed to engender performance management in Enugu state civil service. The population of the study was established and put at about 10,100. From this, a sample size of five percent (505 persons) was drawn. The procedure was abinitio stratified. Both primary and secondary sources of data collection were employed. The techniques used for data collection under the primary source were scheduled and unscheduled personal interviews. Books, periodicals (including academic journals) government publications, documents from organizations, and unpublished but relevant works were also utilized. Efforts were made to establish reliability of the data-gathering instruments using Cronbach Alpha procedure. A number of findings were made. Notable among them were: (1) Training and retraining, promotions, high salaries and granting of housing and car loans of staff was not adequate hence low performance. (2) Performance appraisal measure apparatus were faulty hence could not measure key performance indicators of individual and team workers. (3) Measures put in place by Enugu State successive governments (1999 – 2011) could not enhance performance management of workers. This study recommended that workers of Enugu State civil service be exposed to training, retraining especially the Internet Communication Technology (ICT), high salaries, incentives in form of housing and car loans. There should be proper evaluation technique for workers input against the key performance indicators. This would enable them ascertain those fulfilling the organizational goals and those that needed re-training and those that cannot fit into the organization.

15

CHAPTER ONE

INTRODUCTION

1.1 Background to the Study

With the coming of globalization era, government organizations

around the world will face the challenges in the new century of

complex governance from both internal and external environments.

The spillover effect of functions, the linking effect of issues and the

involving of pluralistic actors have appeared in a number of new

public issues and public affairs. The effects not only increase the

complexity of public governance but also cause public organizations,

within the pluralistic governance ability to ensure the delivery of

quality services. In this regard, the civil service is an institution

saddled with the responsibility of designing, formulating and

implementing public policy, and discharging government functions

and development programmes in an effective and efficient way. In

many African countries especially Nigeria, development efforts and

government policies are threatened by the incompetency and

ineffectiveness of the civil service. As a result of this, successive

governments in Nigeria (from post-independence era to the

contemporary times), have embarked on articulated patterns of

reforms aimed at improving the efficiency and effectiveness in the

civil service (Salisu, 2001:1).

16

Performance management has its roots in the early 1900s with

special attention on this practice in the United States of America, and

United Kingdom military for evaluating officers (Hartog et al., 2004).

Performance management can act as a bridge between corporate

strategy and concrete interventions in the process of goal achievement

(Boselie, 2010). The gap between justification of pay and the

development of skills and knowledge became a huge problem in the use

of performance management. This approach of managing performance

was developed in the United Kingdom and the United States much

earlier than it was developed in Australia.

The New Performance Management approach was adopted by

American’s Vice President Al Gore’s National report, from Red Tape

to Results: creating a Government that works better and costs less,

explicitly sought “a new customer service contract with the American

people, a new guarantee of effective, efficient, and responsive

government” (Gore, 1993).

The American Vice-President, Al-Gore, called for the following

steps, among others: putting customers first, making service

organizations compete with one another, creating market dynamics,

using market mechanisms to solve problems, empowering employees

to get results, decentralizing decision making power, streamlining

the budget process, decentralizing personnel policy, and

streamlining procurement. (Gore, 1995).

17

Armstrong (2008:4), pointed out that the application of

performance management is to improve the organization member’s

performance by developing the capability of the team and its

members through a strategic and integrated system which can

encourage organizations to operate successfully. Since 1980s,

government reinventing movements around the world have initiated

the ‘new public management’ trend. Therefore, various theories,

definitions and methods based on performance management have

eventually become significant political tools for improving the

performance of public organizations and the quality of public

services. Meanwhile, the performance-based government operation

has become fundamental to implementing the essence of new public

services and strengthening national competitiveness.

In order to realize the goals of social service delivery and

development, capable workforce is required. These are products of

employee recruitment and retention strategies of the civil service to

achieve performance. According to Olowu and Adamolekun (2005), it

is becoming more essential to secure and manage competent human

resource as the most valuable resource of any organization, because

of the need for effective and efficient delivery of goods and services

by organizations, whether in public or private sector. Therefore, for

an organization to realize its goals, appropriate strategies for

18

employee recruitment and retention are sine-qua-non for enhanced

performance.

According to Armstrong and Baron (1998), performance

management is both a strategic and an integrated approach to

delivering successful results in organizations by improving the

performance and developing the capabilities of teams and

individuals. The term performance management gained its

popularity in early 1980’s when total quality management

programmes received utmost importance for achievement of

superior standards and quality performance.

Organizations are established in both private and public

sectors for some basic objectives, for which reason such

organizations were established. The basis for assessment of such

organization’s success is on the achievement of the objectives. It is of

note that the important role of the government is carried out by the

Civil Service. Ofuebe (2005:1), quoting Abati (2005), states thus:

As a people, we must insist on the need for the state and its custodians to expand the role of the public sphere. This means making the governance process more transparent and accountable with less empty rhetoric that produces moral turpitude. The crisis of democracy does not point ultimately to the failure of democracy but to the failings of its managers. Every society faces its own crisis, how the crisis is resolved is where the difference lies. To retain legitimacy, the Nigerian government must do business differently.

19

Onah (2001: 8), emphasized the need for workers to be highly

motivated in order to perform well. This assertion was made vivid

when he was discussing the strategies for mass mobilization. He

continued that mass mobilization will be a herculean task in a

situation of abject poverty.

As Margret (1976: 55) pointed out, whether or not workers live

up to expectations of their employers depends on management

success in motivating them adequately at work. Adedeji (2001: 6)

opined that Nigerian Civil Servants are the most demoralized in West

Africa. He stated that a demoralized worker cannot perform

optimally because he is faced with emotional and psychological

trauma which affects his performance and unless and until he is

induced, the organization he represents will continue to record

minimal success.

Onah (2008:4), had observed that the efficiency with which an

organization can perform will depend to a large extent, on how its

human resources can be managed and utilized. Every manager

must, therefore, be able to work effectively with people and also be

able to solve the various problems the management of people may

entail. He noted that most organizations are becoming more complex

in nature and, therefore, leaders in these organizations are expected

to have greater technical competence and a better understanding of

human behaviour.

20

Enugu State Government recognizes that in order to establish

best practices in providing service to the citizens; the central focus

should be the service provider who attends to the citizens at the

service windows. It was clearly identified that if the public servants

are repositioned to deliver best service, the citizen will not be

shortchanged but will be assured of his or her rights with regard to

receipt of government services.

1.2 Statement of the Problem

Since the inception of Nigerian public/civil service and before

the efforts of the Obasanjo administration, there have been 14

previous major attempts through commissions, committees and

teams, beginning with Hunt’s Commission of 1934, at addressing

the state of the service, incorporating both conditions of service, staff

performance and service delivery (Adegoroye 2006 and Salisu 2001).

Underlying the various efforts is the need to create a holistic

perspective in government management, one that would match the

comprehensive outlook applied in economic planning, while at same

time ensuring that the service is staffed with the right caliber of

personnel.

Each attempt at ‘reforming the Nigerian public service has

usually been premised on some justifications to portray

government’s moves as altruistic. The Obasanjo administration

21

almost immediately at inception initiated the reform process. The

first step in this direction was the organization of a 10-day Seminar

for Permanent Secretaries in the employment of the Federal

Government. This was followed by a series of similar seminars

organized for officers at the Directorate level. The communiqué

issued at the end of the seminar raised issues that are being

addressed by the reform measures. Some of them, highlighted by

Adegoroye (2006) are:

i) The need to address the massive expansion in the size of the

service which had risen to 350 per cent between 1960 and

1999, compared with a national population increase of 160 per

cent over the same period;

ii) Dealing with the decline in the institutional capacity,

efficiency, effectiveness and commitment of the service;

iii) Focusing more on ethical and moral issues, and in particular,

addressing the popular perception that the civil service was

corrupt;

iv) Restructuring and streamlining the service.

According to Kerslake (2013: 3):

Improving our approach to performance management is about being the best that we can be, both as an organization and as individuals. Strong staff performance is crucial to the creation of a more efficient and effective civil service with the capability to deliver more for less, and ensuring that we are all delivering to the best of our ability is a big part of that. Achieving the civil service Reform Plan’s goals

22

relies on a workforce that is constantly seeking to improve, at each and every grade or level.

The most important part of improving performance is to receive

honest feedback from our managers, our colleagues, our partners

and our customers. Without this, it is hard to focus our efforts on

the right areas to improve. The new performance system rightly

focuses on both ‘what’ we do and ‘how’ we do it. As with all new

systems, we are taking stock of how it has worked and where it can

be strengthened.

The rising expectations coupled with spending cuts means the

civil service needs to change to meet the long term challenges that

all economies are facing. Civil servants themselves want change:

better performance management; more active development of

careers; and better leadership of change. At the same time, the

economic and financial challenges, public service reform and rising

consumer expectations mean government needs to operate

differently.

Robinson and Robinson (1995) reiterated that the most

significant direct benefits of training and manpower development are

clarity in job duties and responsibility as well as increases in

employee’s competence among others. Also, Onuoha (2000) pointed

that the best way of managing depends on the specific

circumstances and environments. He maintained that training and

manpower development are the products of given situations, such

23

that no training method, technique or style is the best for all trainees

under all conditions.

The basis of the public sector’s effort to improve its efficiency

and effectiveness is performance measurement, or what some

analysts prefer to call “performance indicators”, on the grounds that

the term “measurement” implies an ability to precisely measure

policy outcomes, even though such precision is rarely attained in the

messily human arena of policy implementation (G. Gaither et al.

1994). If resource allocation questions were the only use of public

programme evaluations, they would provide more than adequate

justification for conducting then, but there often are deeper

motivations for initiating programme evaluations. As Riecken (1977

page 5) noted:

Evaluation research can be invoked for a variety of purpose, not only as a means of improving programmes. Sometimes evaluation is undertaken to justify or endorse an ongoing programme and sometimes to investigate or audit the programme in order to lay blame for failure, abolish it, change its leadership, or curtail its activities.

Also, performance appraisals have gained greater attention as

governments at all levels have been under public pressure to be

more efficient, economical, effective, and responsive.

Obi and Chukwuemeka (2006: 12) observed that it is obvious

that inefficiency of civil service is a discredit to the democratic

government in Nigeria. They are caused by the strict adherence to

24

the bureaucratic rules by the civil service thus, leading to poor and

belated policy making and subsequently Methuselah age to be

implemented, all in the name of due process, while the populace

which consumes the outputs suffers at the end. This obviously

differs from military administration, where the military administrator

gives order to the civil service and it shall be carried out. Example

was the military regime of Mike Torey in Enugu State.

According to a guide to Enugu State Service Compact (SERVICOM)

and Performance Improvement Bureau (PIB), Service Standards and

Operations, the Enugu State established it in conjunction with

British Government during Dr. Chimaroke Nnamani’s tenure for the

improvement of the lapses in the civil/public service.

Governor Sullivan I. Chime highly favoured a 4-point agenda

for development. These include: physical infrastructure, economic

expansion and empowerment, rural development and service

delivery. Governor Chime’s led administration as captured in the 4-

point agenda (2012) on encouraging service and accountability

asserts:

“The public service must provide services to the people of the state; and every public servant, including political office holders, must be accountable to the people for the services for which he has been employed to render.”

The Enugu State Government 4-point agenda which is “Service

Delivery and Good Governance” was the driving force that propels

25

the Government determination to having a model and functional

public service. Enugu State was poised to give immediate attention

to ensuring re-orientation, training, retraining and development of

her staff including training on legal issues and Internet

Communication Technology (ICT). Government was also concerned

on how to organize retreat for political office-holders on Public

Service Rules and Financial Instructions. Government was also

poised to consider the improvement of the condition of service of

civil/public servants. The Enugu State government had also the

problem of improving the work environment to sustain confidence

and trust of the citizens. The resuscitation of housing and car loans

were considered. Government of Enugu State is making an effort to

stem favouritism in the service and entrench a transparent reward

system in the service.

The following key performance indicators are germane to any

public enterprise. These include: Elected administration leaders

who are able to improve the political control in the civil service

system through carrying out performance management;

Establishment of the principle of accountability in the democratic

system through performance management; Having managers within

the civil service system who could utilize performance management

to strengthen the efficient management of administration processes,

to improve the quality for administration services and increase the

26

competence of public organizations; For civil service officials who

carry out policies, performance management may have a steering

navigation effect and ensure that associated members understand

the work requirement and essential responsibility required by

managers.

As a result of these key performance indicators, we pose the

following research questions:

(1) What are the problems of performance management of civil

service in Enugu State?

(2) Does performance appraisal impede performance management

of civil service in Enugu State?

(3) What measures can be employed to enhance performance

management in Enugu State civil service?

1.3 Objectives of the Study

The general objectives of this study were to examine the

performance management of civil service in Enugu State 1999-2011.

The specific objectives were to: -

(1) ascertain the problems of performance management of civil

service in Enugu State;

(2) find out the effect of employee performance appraisal on

performance management of civil service in Enugu State;

(3) examine the measures that can be employed to enhance

performance management in Enugu State civil service.

27

1.4 Significance of the Study

This study has both theoretical and empirical significance that

served as justification for the study. This work uncovered the causes

of poor performance management system of Enugu State civil

service. It will also help students of Social Sciences and other

disciplines in understanding relevant issues in performance

management system in organizations.

Empirically, this work will enable managers of organizations to

translate organization and project objectives into individual

contribution. It will enable managers to assess delivered

performance against targets. It will also help job holders to clarify

understanding of objectives and identify issues pertaining to their

schedule of duties. This project will enable managers of

organizations for performance planning which is pivotal for effective

performance reviews and assessments. It is with good quality, agreed

objectives can the management of performance be fully effective. The

scripture categorically stated that: ‘my people perish because of lack

of wisdom’. (Hosea 4: 6).

This research will enable managers of organizations to give

out the new civil service competency framework to all civil servants

across all grades. This will set out how the people in the civil service

are to work. This work will enable policy makers to make policies

that will communicate rewards, rationale and criteria to the workers.

28

This work will be of immense help to the workers themselves as this

will enable them do what they ought to do. It will bring to limelight

that fact that they are stakeholders of the organizations and as such

their success to meet the organizational goals will invariably

determine the success of their own personal interest or needs.

In addition, this work would enable government and private or

non-governmental organizations to treat people as unique

individuals that had varied needs that should be met in the work

place. Human behaviours are determined by what motivates them.

Since an individual’s performance is a product of motivation, a

concerted effort should be made by government to provide the

driving force that would enhance job satisfaction.

1.5 Scope and Limitations of the Study

Scope:

The study centered on performance management with

particular reference to Enugu State civil service. The areas of

performance management to be investigated include training,

motivation, performance appraisal and competitive pay. The period

of study covered 1999 to 2011 – the period covered Dr. Chimaroke

Nnamani’s tenure (1999-2007) and first tenure of Barr. Sullivan

Iheanacho Chime (2007-2011).

29

Limitations of the Study

In the course of carrying out this work, some difficulties were

encountered. For instance, some of the documents that were

collected from the Enugu State Civil Service Commission were not

easily released to us by the workers. They were unwilling to do so

because the documents were tagged “official documents”. The

workers were also reluctant to give us some detailed information for

this work as they were afraid of being victimized. Nevertheless, we

applied to the Permanent Secretary of the Commission who approved

the release of some of the documents needed for this research.

Knowing the importance of this research to the enhancement of

performance of workers in Enugu State, he sympathetically ordered

the release of the documents needed.

30

CHAPTER TWO

LITERATURE REVIEW

2.0 Literature Review

The literature review focused on the following sub-themes.

(a) Historical development of the civil service in Nigeria.

(b) Contending issues in performance management of civil service

in Enugu State.

(c) Enhancement of performance management system in

Enugu State civil service.

(d) Barriers to performance management of civil service in Enugu

State.

(e) Remedies to the challenges of performance management of

Enugu State civil service.

(a) Historical Development of the Civil Service in Nigeria

The Civil Service was one of the legacies bequeathed to Nigeria

by the colonial masters. However, opinion differs about the origin of

the institution. The first school of thought traced the origin of the

Civil Service to 1861 when Lagos was annexed by the colonial

masters. To this school, rudimentary administration commenced at

this particular time, though on a limited scale. The second

perspective upholds the position that the Civil Service in Nigeria

began in 1900. By that date, the colonial civil service as an

institution was established in Southern Nigeria and Northern Nigeria

and a new instrument was published to re-organize and reinforce

31

the old service in Lagos colony (Jega, 2001: 32). The third school of

thought argued that the origin of the Civil Service in Nigeria could

not pre-date Nigeria itself. Thus, they maintained that the year 1914,

when the Southern and Northern Protectorates were amalgamated

was the true origin of the Civil Service in Nigeria (Jaja, 2001).

Whatever the origin, there is no doubt that the Civil Service is an

alien institution transplanted to Nigeria by the British colonial

masters. Therefore, the Nigerian Civil Service since independence

has been patterned along the British system. (Excerpt; The 1988 and

the present reforms which attempted to restructure the service in

line with the presidential system of government). Three features

characterized the colonial phase of the Civil Service (Olowu et al.,

1997). The first was the domination of the upper echelon of the Civil

Service by Europeans. For instance, in 1948, 245 of 2,541 and in

1952, 685 out of 3,679 senior posts were held by Nigerians. In June

1960, a few months before independence the number of Nigerians

occupying senior service positions had increased to 2,308 out of

4,057. Second there was concentration of all power (executive,

judicial and legislative) in the hands of appointed officials to run the

affairs of the colonial territory (Adamolekun, 1986: 33). The third

feature was that the colonial service co-opted traditional rulers in

administering Nigeria (Indirect Rule System). This system served the

purpose of cost savings to the colonial power, gave colonial rule

32

some measures of legitimacy and made the task of tax collection

easier by assigning the traditional rulers as key agents of tax

collection. It is important to note that, the evolution of the federal

Civil Service from colonial rule to the present is a reflection of the

political transitions and crises that the country had witnessed. As

Olowu, Otobo and Okotoni (1997: 3) wrote:

The evolution of the Federal Civil Service from colonial rule to the present reflected the political transitions that the country has witnessed. The colonial civil servants – consisting of the British and Nigerians – served at the behest of the British Monarch. They carried out their duties on the instructions of the British government, which was theoretically at the service of the Crown. Thus, the Nigerian Civil Service up till 1954 can be said to have acted as State Servants. From independence in 1960 and thereafter, the federal civil servants have served as professional public servants.

Two major factors have influenced the structure, size and

functions of the Civil Service in Nigeria. Firstly, the political and

government instability, that has plagued the country since

independence when the military took over power in 1966 changed

and expanded the role of the Civil Service and its influence in policy

and decision-making considerably. The Civil War which started in

1967 and the Federal Government policy of 3Rs (Reconstruction,

Rehabilitation and Reconciliation) which came immediately after the

war also, fundamentally, altered the functions, size and shape of the

Civil Service. The second factor is the economic fortunes and

misfortunes of the country. The post 1970 period – the indigenization

33

decrees and the idea of State Control of the “commanding heights” of

the economy resulted in an increased and more direct role for the

Civil Service in economic management. More importantly, the

discovery of oil wealth in the 1970’s enabled federal government to

increase its participation in the economy. By the late 1970s and

early 1980’s the economy of Nigeria had started witnessing some

problems. As a result of the economic downturn, further changes

emerged in mid 1980’s with the economic policy reform package

commonly referred to as the Structural Adjustment Programme

(SAP). Directly and indirectly, the policy of Structural Adjustment

Programme affected the Civil Service in two major ways. First was

the size of the Civil Service and second was the role of the Civil

Service. Through the policy of SAP many parastatals that were

hitherto poorly managed were privatized and some commercialized.

(Adegoroye 2006:27) Therefore, there was a ‘technical’ reduction in

the size of the public service as some of the Civil Servants were

either disengaged or transferred to the private sector. Second, the

role of the Civil Service as economic managers reduced drastically.

The 1988 reforms which came later, sought to address both the

political and economic dimensions of the Civil Service reform. This

was the first real effort aimed at transforming the inherited British-

style civil service into one that is adapted to Nigerian political and

economic realities. One thing to note here is that, since

independence, the Civil Service has not adequately met the

challenges of development. This and other factors like the global

34

economic, political and technological environment were responsible for

the reforms that have taken place so far.

Since the inception of the Nigerian public/civil service and

before the efforts of the Obasanjo administration, there have been 14

previous major attempts through Commissions, Committees and

teams, (see Table 1) beginning with Hunt’s Commission of 1934, at

addressing the State of the service, incorporating both conditions of

service, staff performance and service delivery (Adegoroye 2006 and

Salisu 2001). Underlying the various efforts is the need to create a

holistic perspective in government management, one that would

match the comprehensive outlook applied in economic planning,

while at same time ensuring that the service is staffed with the right

caliber of personnel.

Table 1: Civil Service Reforms in Nigeria 1934-1994

S/No. Name of Commission/Committee Year 1. Hunt’s Commission 1934 2. Harragin Commission 1945 3. Foot Commission 1948

4. Gorsuch Commission 1951 5. Phillipson – Adebo Commission 1954 6. Mbanefo Commission 1959 7. Hewn Committee 1959 8. Morgan Commission 1963

9. Eldwood Commission 1966 10. Adebo Commission 1971

11. Udoji Commission 1972 12. Dotun Philips Reforms 1985 13. Decree No. 43 1988 14. Ayida Review Panel 1994

Source: Salisu 2001 and Adegoroye 2006

35

In spite of all the efforts at reforms, the problems or

accusations remain. In the words of Salisu (2001), ‘in spite of efforts

at reforms, the service remains inefficient and incapable of reforming

itself, let alone the rest of the economy. Corruption has become an

endemic feature of public sector activities, with the oil booms and

busts distorting the incentive structures of civil servants and other

agents in the economy’.

(b) Contending issues in performance management of Enugu State Civil Service

Nigerian civil service is fraught with the following problems

and discontents: lack of measurable objectives; inadequate

evaluations; mismanagement of time; inadequate facilities;

disorganization; personnel mismanagement; and over centralization.

These internal weaknesses led many ‘public organizations to: define

their output as money disbursed rather than service delivered,

produce many low-return observable outputs (glossy reports and

frameworks) and few high-return less observable activities like ex-

post evaluation, engage in obfuscation, spin control, and official

amnesia exhibiting little learning from the past, and putting

enormous demands on scarce administrative and technical skills’

(Easterly, 2002:223). This however, culminates in marring of

government’s laudable policies vis-à-vis poor implementation

strategies (i.e. bureaucratic procedures) adopted by the civil service,

effecting unworkable solutions, putting obstacles in the way of

policies formulated by the political officials (Okotoni, 1996).

The corrupt practices of heads of ministries, establishments

and agencies had eaten deep into the fabrics of the Enugu State Civil

36

Services. Furthermore, the neglect of the political class of the plights

of the Civil Servants has greatly contributed to the poor performance

of the workers. Also to stem the tide of corruption in the Civil

Service, there was a grave need to realign the incentive structure. It

is found that there is a significant correlation between pay incentive

and corruption in the Civil Service (Salisu, 2001). The Civil Servants

are the least paid workers in the country compared to employee in

private organizations like banks and other government and

Parastatals like Ports Authority etc. Other problems are neglect of

merit principle in favour of other considerations in the recruitment and

selection process. However, it is necessary if not imperative for

the government to adequately remunerate the civil servants for

efficient, effective performance of their duties.

For its importance, performance as it is applied here has

become everyday word since the Second World War. Governments,

politicians, academics and economists have all stressed the

importance of productivity because of its relationship with general

economic health of a nation. Corporate management globally are

regarded as a main indicator of efficiency when comparisons are

made with competitors in world markets. Governments stress the

relationship between productivity, the standard of living, inflation

and economic growth (Craig, 1972).

37

Nwachukwu (2007:29), holds that performance of an employee

is seen as the relationship between units of labour input and units

of output. Performance is reaching the highest level of performance

with the least expenditure of resources. Nwachukwu holds a good

definition of performance as one that includes three major elements

– output, resources committed (input) and time. This led him to put

up a definition that forms a combination of the elements mentioned

thus: “performance is the output resulting from a given resources

input at a given time”. He then puts performance equationally as:

ePerformancInput ofCost

Output of Value =

One idea is basic that performance is at the heart of every

organization’s progress and there is no doubt that motivation is the

crux of good performance. Being so, motivation, just like productivity

itself is extremely important to organization and as such should be

worked for. Of course, Nwachukwu (2007: 50) has always

maintained that performance is a function of ability and will, which

means that people work better when the environment, working

methods and the equipment have been designed to help them. If we

add to this the natural motivation to do a good job-of-work for an

appropriate reward, we can confidently anticipate improved

productivity. The organization has some roles to play on an employee

to help boost the employee’s productivity. Of course, the job of a

38

manager in the workplace is to get things done through employees.

To do this, the manager should be able to motivate employees. But

that is easier said than done.

According to French (1978) described the dynamics of

motivating people through training programme in the following

words:

In order to change behaviour in the direction of greater contribution to the attainment of organizational goals, the individual must perceive the new, expected behaviour serving to fulfill needs, or at least as not leading to deprivation of fulfillment … supplying goals that fulfill needs and are within reasonable reach of employees is very important in providing motivation as it relates to training and development. In other words, the environment must be conducive to change in behaviour.

The implication of the training – motivation correlation for

organizations sponsoring their employees on training programmes is

perhaps more critical for the civil service, particularly in developing

countries where government is the largest employer of labour and

the problems of motivating the workforce is rather daunting.

The main tools in the manager’s kit bag for motivating the

team are:

� Approval, praise and recognition. As Mullins (2007: 249) will

caution:

39

If members of your staff do something good, tell them. And then tell them again, and again. Keep it up. Put it in writing. Send them a memo – something they can keep. Put in the company’s Newsletter. Add a note to their file. Whatever, but make it widely known that they did well. This is a quick and cheap method of praising and motivating your team and let everyone know you are monitoring, praising and motivating them.

� Trust, respect and high expectations.

� Loyalty given that it may be received.

� Removing organizational barriers that stand in the way of

individual and group performance (smooth business processes,

systems, methods and resources – see team building

programme).

� Job enrichment

� Good communications

� Financial incentives. (See Appendix 2)

The authors just like Nwachukwu (2007) and Milkovich and

Boudreau (2004) maintained that three basic issues inform

employee performance. They put up a diagrammatical expression of

ability, motivation and job content and methods as the three basic

issues that inform employee performance. That work performance

may be improved by developing the ability of employees to do their

jobs better. This necessitates, in the first instance, finding and

allocating the most suitable people to do the work. It is the purpose

of an organization’s recruitment, selection and personnel allocation

40

procedures to do these tasks. Improving the knowledge and skills of

those already employed are the purpose of its training and

development by altering the content of the job, the methods

employed in doing the job and the environment of the job.

• The Enugu State civil service uses the Annual

Performance Evaluation Report (APER) system in

evaluating the members of her staff for promotions. It is

important to state that these staff annual reviews are

generally perceived as a difficult and painful process by

both managers and employees. There are typically no

objectives which are set in appraisal systems; there is no

link to strategic or operational outcomes. Where there is

a well structured performance management system that

is effectively communicated, both the employee and

manager enter the process with better levels of

confidence as there are “rules” that clearly stipulated

what is being assessed and how. Employees are assessed

on achievement of objectives that had been clearly

identified and agreed to. Managers have a better

framework to assess an employee’s performance as they

are familiar with the criteria to assess the employee. The

outcome is that both individuals have an informed

discussion and focus on achievement of both personal

41

and business objectives, not on issues that are

irrelevant. For job holders who are performing below

their peers, intensive support, training and coaching

should be employed to aid such workers. This might

include:

• Coaching to enhance performance further.

• Setting more stretching goals.

• Tailoring development to build confidence and experience.

• Plugging competency gaps.

• Looking at ways to re-energize in the current role, considering whether they have been in the role too long

Lunger (2006: 8), argued further that modern performance

management must originate from organizational development

strategies, goals and values, the coordination functions of

performance, the satisfaction of internal and external customers, the

focus on group and team performance, the emphasis of cross-sector

and cross-function appraisal, the performance monitoring and

development, the evolution of performance measurement with time

and sustained growth.

42

Review

Work Effort

start of year End of year

Appraisal

Face to Face Planning

Set Objectives

Set Development Plan Interim Final

Competency Review Review Review

Work Effort Work Effort

Start of year End of year

Performance Diary Notes

Performance Management

Figure 1: Graphic view of the difference between Performance Appraisal and Management

Sources: www.peoplestreme.com

The above figure showed that organizations manage their staff

performance appraisal to ensure consistent performance

improvement. Annual Appraisal which starts from the first month of

the year and the review comes up at the end of the year where the

boss sits in judgment of the subordinate to assess him/her at the

43

end of the year. The end of year appraisal of workers is subjective

hence they do not ensure consistent performance improvement.

The performance management evaluation is conducted as

objectively as possible and in more scientific way because the

system that assesses the job rather than the individual. The

performance management is used to ensure that employees’

activities and outcomes are congruent with the organization’s

objectives and entails specifying those activities and outcomes that

will result in the firm successfully implementing the strategy (Noe et

al., 2000: 5).

Some writers such as Cooper & Argyris (1998), had

introduced ‘Forced Ranking’ as a performance intervention, which

can be defined as an evaluation method of forced distribution, where

managers are required to distribute ratings for those being

evaluated, into a pre-specified performance distribution ranking.

According to Meisler (2003:2), commenting on Forced Ranking

asserted:

It is a workforce-management tool based on the premise that in order to develop

and thrive, a corporation must identify its best and worst performers, then nurture the former and rehabilitate and/or discard the latter. It is an elixir that in these slow- growth times has proved irresistible to scores of desperate corporate chieftains – but indigestible to a good many employees.

44

In recent years, organizations have begun the admittedly tough

minded approach of ranking associates against each other. It can be

argued that approach is dictated to force managers to make the

performance evaluation process truly reflect how each team member

is performing, relative to others, with the ultimate goal being more

productive employees, who perform at a high level to make service,

revenue, and growth goals attainable. “Forced ranking flushes…

laggards into the open” (Morrison and Keefe, 2003:3). The less

difficult path of not using forced ranking, or some type of

comparison of relative contribution, has been perceived as

counterproductive to business success, because those staffers at the

top are not commensurately rewarded, and therefore at risk for

being retained. Conversely, those ranked at the bottom have not

been identified, therefore, had not been coached, nor improved, or

terminated.

Jack Welch, retired Chief Executive officer of General Electric

(GE) in America, is most often associated with forced ranking. He

argued that since General Electric used this performance tool to

eliminate the bottom ten percent of performers each year. Dick

Grote, president of Grote consulting and a performance appraisal

expert, contended that “managers would rather have a tooth pulled

out than have a performance conservation with a subordinate. He

contended that dealing with the issues of poor performers is

45

probably the most difficult job that anybody with supervisory

responsibility has” (Levinson, 2003:13). It can be argued the general

lenience with poor performers, which translates to an unfair and

bigger burden for good performers is the primary reason so many

companies have turned to forced ranking as a performance

intervention.

There are several ways to administer forced ranking, as long as

associates’ performances are essentially ranked against one another,

as indicated in Table 2.

Table 2: Types of Forced Ranking and how it works.

Forced Ranking

How it works (requirements)

Results

Bell Curve

10% are top performers, exceeding expectations.

80% are backbone, meeting expectations. 10% are not meeting expectations.

Receive highest compensation increases: in line for advancement. Receive moderate compensation increases Receives little or no compensation; coached for improvement; subject to termination.

Totem Pole One individual is at the very top, someone else is at the very bottom and everyone else is ranked consecutively in between, based on performance.

Similar results as above.

Quartiles Associates are ranked in four equal quartiles. Similar results as above

Source: Charlotte A. Donaldson, Performance Technologist, Bank of America. The above table shows that the ‘Forced Ranking’ helps a corporation

to identify its best and worst performers, then nurture the former

46

and rehabilitate and/or discard the latter. Forced ranking has its

detractors. This technique of forcing managers to delineate

performance has been called brutal and Darwinian (Morrison &

Keefe, 2003). One common criticism is that it pits associates against

each other, instead of fostering a collaborative work environment. On

those occasions when managers lead truly high-performing teams,

someone still must be ranked low, despite meeting performance plan

goals. Nevertheless, to overcome the negative perception of forced

ranking, writers contended that honest communication, thoughtful

performance appraisals, and admittedly tough ranking seem to be

key to the success of this performance intervention.

An effective performance management process established the

ground work for excellence by:

� Linking individual employee objectives with the organization’s mission and strategic plans. The employee has a clear concept on how he contributes to the achievement of the overall business objective.

� Focusing on setting clear performance objectives and expectations through the use of results, actions and behaviours.

� Defining clear development plans as part of the process and � Conducting regular discussions throughout the performance

cycle which include such things as coaching, monitoring, feedback and assessment. The performance management at the individual level is an on-

going interactive process between appraisee and appraiser for

effective measurement of performance.

47

Figure: 2: Performance Management Cycle.

planning

reviewing performing

Monitoring

Source: Armstrong (2008: 17)

Figure 2 above which is on performance management cycle is a

performance measurement technique which is essential part and

assuming performance management as an entire process of

management; this procedure includes the following four steps:

(1) planning: deciding what to do and how to do it; (2) performing:

bringing the planned operations into action; (3) monitoring:

inspecting the work completed or in progress, measuring the results

and (4) reviewing: evaluating the finished work, and if the overall

performance is far below the original plan, the plans and operations

procedures will be fixed. The above four steps are closely connected

Economy

equity efficiency

effectiveness

48

to one other from planning to reviewing and have become essential

components in developing the performance management cycle.

This is done by the apex management of the organization. It is

then translated to all the functional sections of the organization.

This if effectively done would lead to re-defining each job positions

and duties and ensuring that each employee is given what he can do

best. Anyone who cannot fit in anywhere is either retained for new

job opportunity or shown the way out (Armstrong, 2008: 15-16;

Cable, 2005: 6).

In his own emphasis on training, Onah (2003: 122) stated that

“in order to maximize the productivity and efficiency of any

organization, every executive manager or supervisor in a public or

private enterprise has the responsibility and indeed the binding duty

to ensure the development of man and woman who have requisite

knowledge and expertise”. Onah (2003: 122) citing the work of

Akpan (1979: 13) asserts:

An untrained man in the modern world may be a menace to the society. He is a quack; he knows only the laws of things; he has no idea of (their) why. Hence, if there is any trouble anywhere – breakdown in a machine or a mistake in a ledger all he can do is to fumble and patch up trouble anyhow, leading to a more serious breakdown or greater confusion. Really there is no place for the untrained worker or even the intelligent amateurs in these days of specialized work.

It is certain that an unmotivated employee is a threat to the

achievement of organizational objectives.

49

It is important to state: those non-materialistic sources of

motivation may also be powerful to motivate workers especially in

the public sector. They may be mobilized through individual or

organizational level incentives. As for the latter, many contemporary

approaches to managing for results subscribe to the view that a

fundamental tool for improving agency performance is “the explicit

specification of objectives, the measurement of performance against

those objectives, and the setting of performance targets” (Paul and

Robinson, 2997: 330). Some human resource managers even argue

that workers should be given a salary that is sufficient (to be

considered as fair) – but above a certain level, motivation for

performance should be induced by other types of incentives. As

Kohn (1998) puts it, “pay people well. Pay people fairly. And then do

everything in your power to take people’s minds off of money.” One

can also consider paying staff on the basis of a subjective

performance assessment – that is, ratings by peers or supervisors

that are intended to capture aspects of the workers’ contribution to

the agency which are hard to measure. This is for instance, the case

in Singapore, where the civil service introduced in 1983 a Potential

Appraisal System (borrowed from a private petroleum company) to

appraise senior civil servants for promotion and development

process (Vallance, 1999). The use of bonuses based on performance

appraisal (together with other incentives) is now more and more

50

used in Singapore. In Singapore, civil service salaries are

commensurate with those offered by the private sector. Significant

social prestige attaches to employment in the higher ranks of the

civil service and senior staff is richly rewarded for its efforts, with

civil service salaries being amongst the highest in the world. Perhaps

consequence, corruption among civil servants occurs infrequently.

The Enugu State Annual Performance Evaluation Report (APER) is

done at the end of every year which is scored by the head of

department or unit of such a worker.

According to letter Ref. No. ENS/SSG/ECA/CON/164/ S.9/16

dated 30th November 2010, the Permanent Secretary on behalf of the

Secretary to the State Government called for a workshop. The one-

day meeting was on Enugu State government structure, organization

and function: Mandate and structure of public service documents.

They came out with the following documents to resolve some of the

contentious issues.

The overall functions of the Head of State Civil Service include:

(a) Public service policy, management and reforms.

(b) Providing leadership and direction to the service, maintaining

high morale, espirit de corps and favourable image of the

service in line with the code of conduct.

(c) Co-ordination of grading in the Civil Service and parastatals.

(d) Personnel policies and practices, including recruitment policy.

51

(e) Salary reviews.

(f) Salaries, wages, allowances, pensions, gratuities, conditions of

service including the implementation and continuous review of

Civil Service rules except appointments, promotions and

discipline.

(g) Staff Negotiation Council and the direction of staff negotiation

generally.

(h) Advising the Governor on the appointment and deployment of

permanent secretaries and Heads of Departments (concurrent

with Secretary to Government).

(i) Management and maintenance of the Human Resources

Information system.

(j) Promotion of good relations between commissioners, political

appointees and Civil Servants.

(k) Liaise with Civil Service commission, Judiciary and Audit

Department.

(l) Management of Government Staff Housing.

(m) Organization of Annual Civil Service week.

(n) Enugu State Gazette actions.

(o) Allocation of office accommodation and staff quarters

(concurrent with Secretary to the Government).

52

According to Federal Republic of Nigeria Public Service Rules

(2010) Chapter 13 on Allowances gave array of the following

allowances payable to officers in the federal public service.

(a) Kilometers Allowance

(b) Disengagement Allowance

(c) Hotel Accommodation Allowance

(d) Duty tour Allowance

(e) Transport and Local Running Allowance

(f) Estacode Allowance

(g) Estacode Supplementation Allowance

(h) Warm clothing Allowance

(i) Local Course Allowance

(j) Book Allowance

(k) Projects Allowance

(l) Overtime allowance etc.

Also the Public Service Rules chapter 15 provides for reward

for outstanding work.

No. 150102 states that: The recipient of an award must have

been considered as best on the basis of outstanding performance of

duties and exemplary conduct during the year.

No. 150103 states that each ministry or extra-ministerial office

may make such award to deserving officers annually.

53

No. 150104 states that the award may be in the form of

medals, gifts of cash or kind.

The workers monthly stipend has been engulfed by the hyper-

inflation without any other prerequisite to assist him. When you

officially approach him for assistance he looks morose. He is fed up

with the job except that he is yet to get a better alternative. The

future career looks bleak to him. He only retires to fate. This

description of the Nigerian bureaucrat lends credence to Olowu

(1991) who observes that public service is being denied of those very

things that would enable it fulfill its mission.

According to Obikeze and Obi (2004: 24), employees in any

organization are human beings and not objects that can be used

today and scrapped tomorrow. Therefore, they should be cultivated

and developed in order to maximize their performance. It is expected

that adequate and comprehensive employee service/welfare

programmes such as health service programme (health Insurance

policy), on-the-job health measures, safety and accident prevention

programmes, work hours/leave programmes which includes annual

leave, sick leave, maternity leave (for women) etc. should be

developed.

The origin, structure and performance of the contemporary

Civil Service in Nigeria are traceable to colonial administrative

formation. Civil Service in Nigeria has its origins in organizations

established by the British in colonial times. The Nigerian Civil

54

Service is a body of government employees entrusted with the

administration of the country, and mandated to carry out the

policies of the government of the day. In other words, it is the body

of civilian employees of any level of government, not subject to

political appointment and removal, normally hired and promoted

largely on the basis of competitive examination (Bade, 2009).

The Civil Service has been undergoing gradual and systematic

reforms and restructuring since May 29, 1999 after decades of

military rule. However, the Civil Service is still considered stagnant

and inefficient, and the attempts made in the past by panels and

commissions have had little effect on the performance management

of the Civil Servants.

On 15th July, 2000, Nigeria Labour Congress (NLC) Enugu

issued a seven-day ultimatum to government and circulated it to its

members to put all machinery in motion to press home their genuine

demands. They requested the government to implement the new

living wage of N6,500 and all the outstanding demands of the

workers. Negotiation between the State government and labour over

minimum wage started in June 2000. By mid-July 2000, there was

no progress made as both sides stuck to their positions –

government offered N5,500 while labour insisted on N6,500

minimum wage per month. This incidence confirms Salisu’s (2001)

assertion that civil servants are the least paid workers in the country

55

compared to employee in private organizations like banks and other

government parastatals like Ports Authority etc.

The ministries are responsible for various parastatals

(government-owned corporations) such as universities (Education),

National Broadcasting Commission (Information) and Nigerian

National Petroleum Corporation (Petroleum). Other parastatals are

the responsibility of the office of the presidency, such as the

Independent Electoral Commission, the Economic and Financial

Crimes Commission (EFCC) and the Federal Civil Service

Commission (Okoronkwo, 2008). The challenges that lie ahead are to

know whether these reforms that have taken place in Nigeria and if

they promoted sustainable human development.

The Adebo Commission (1970) and the Udoji Commission

(1972) reviewed the structure and orientations of the Civil Service to

make it a more efficient instrument for promoting sustainable

human development. Idris affirms that although these commissions

recommended ways of rationalizing the Civil Service, the greatest

problems of the service remained inefficiency and red tapism (Idris,

2009). The Civil Service by 1990 had changed dramatically. It had

been politicized to the extent that most top officials openly supported

the government of the day. The introduction of the quota system of

recruitment and promotion, adherence to the federal-character

principle, and the constant interference of the government in the

56

day-to-day operation of the Civil Service especially through frequent

changes in top officials and massive purges meant that political

factors rather than merit alone played a major role in the Civil

Service (Odeniga, 2007).

Studies have shown that appropriate rewards (Gomez-Mejia

and Balkin, 1992; Heneman and Judge, 2003), performance pay

(Griffeth et al., 2002), creation of social community in the workplace

that enhances social ties such as encouraging employee marriages

and siblings employment (Ayagi, 2001), job security (Charted

Institute of Personnel and Development [CIPD], 2006), high level of

wage rate and organization’s image (Taplin et al., 2003) and

participative decision and information sharing (Jike, 2003; Riordan

et al., 2005) serve as a catalyst in retaining employees for

organizational performance.

The use of sectional balancing (triangular equilibrium) system

in administration did affect the State Civil Service negatively. The

Enugu North Constituency (Nsukka) was marginalized in the helm of

affairs.

According to Ngwoke (2001: 8), the trophy for the smart

political move he suggested should go to Chief Jim Nwobodo who

was then serving as the Minister of Sports in Abacha’s government.

Further structural modifications of the State were affected under the

Chimaroke Nnamani’s administration in a manner that defies logic,

57

common sense, and elementary justice. A little illustration here will

suffice. In an earlier work, Ngwoke (2004: 46) commented on this

issue as follows:

The old Nkanu (pop. 209,444) was broken into eight Councils while Nsukka (pop. 220,441) got only three Councils, Uzo-Uwani (pop. 99,112) got four Councils, Oji River (pop. 86, 361) has three Councils, and Old Awgu (pop. 232,245) now has a total of seven Councils. There ought to be some logic to this process but one is at a loss to find it. All one can see is the capricious will of one man: Dr. Chimaroke Nnamani.

So how does one evaluate Governor Sullivan Chime? On what

criterion should he be assessed? In my view, the basic yardstick is

the lowest common denominator: justice, the basic, fundamental

virtue of society. There is a constitutional requirement for the

Governor or President or even Chairman of Local Council to be fair

to all the component units of the State, Country or Council Area.

That is section 14 of the 1999 Constitution, Section 14 (4) asserted:

The composition of the Government of a State, or local government council, or any of the agencies of such Government or Council, and the conduct of the affairs of the Government or Council or its agencies shall be carried out in such a manner as to recognize the diversity of the people within its area of authority and the need to promote a sense of belonging and loyalty among the peoples of the Federation.

The present Enugu State governor had not fared better in

abiding by this constitutional provision. For instance, we have about

58

21 judges in Enugu State. Nsukka has only two while Enugu

clinched 14 judges and the scenario spread over State ministries,

parastatals, institutions and agencies and it is not healthy for high

performance and reward management.

(c) Enhancement of Performance Management System in Enugu State Civil Service

Performance management is a normal process of management

which involves all members of the organization as partners so as to

get better results and improve service delivery.

� The primary aim of performance management system in

Ministry/Department is to enhance performance at all levels

by focusing on key areas of activity/services to be delivered

which are identified through strategic planning processes.

� It seeks to establish clear links between organizational

development, the delivery of quality services and the

development of employees at work.

� It also strives to create a common bond of ownership among all

employees as well as an environment where all individuals are

developed, motivated and inspired to deliver a quality

performance (http/civilservice.gov.mu) Ben (2008: 80).

The proper implementation of performance management

system helps to:

59

− Align Ministry/Department, Section/Unit and individual’s

goals.

− Identify key priority areas for judicious allocation of scarce

resources.

− Bring about improvement in processes and systems in

Ministry/Department.

− Provide a common sense of direction to all staff.

− Support leadership, motivating and team-building processes.

− Facilitate change management initiatives.

− Recognize talents and release potential.

− Ensure effective service delivery to meet expectations of both

internal and external customers.

Performance Management System is purposeful with the following purposes.

� The primary aim of Performance Management System in Ministry/Department is to enhance performance at all levels by focusing on key areas of activity/services to be delivered which are identified through strategic planning processes.

� It seeks to establish clear links between organizational development, the delivery of quality services and the development of employees at work.

� It also seeks to create a common bond of ownerships among all employees as well as an environment where all individuals are developed, motivated and inspired to deliver a quality performance. (See Figure 3)

60

Figure 3: Performance Management System Model

PM CYCLE

Source: (Ministry of Civil Service and Administrative Reforms) Mauritius} Govt. Printing Dept. March 2013

The above diagram showed that at the organizational level, the

supervising officer determines the strategic priorities, and the

Overall Key Result Areas and performance indicators are then

assigned to each section/unit. At the section/unit level, the head

develops a section/unit plan based on key result areas as assigned

by the supervising officer. At the individual level, the appraisee

discusses and enters into a performance agreement with appraiser.

Government programme objectives, priorities and

mandates

Organisation Strategic Plan

Section/Unit Annual Plan

Individual work Plan

Final Review

� Organisation

� Section

� Individual

Mid –term Review � Organisation � Section � Individual

61

This should be aligned to section/unit annual plan. Performance at

organization, section/unit and individual levels is monitored

throughout the cycle and appropriate action is taken accordingly.

According to William H. (2013: 6), performance management

involves performance planning at the beginning of the annual

business cycle to provide individuals with direction and stretching

objectives; performance review throughout the business cycle to

ensure objectives remain relevant and good progress is being made,

and formal performance assessment at both mid and end-year

points. Managers should also be holding regular performance

discussions throughout this year enabling performance progress to

be informally assessed on a continuous basis.

Performance planning is the foundation stone for effective

performance reviews and assessments. Only with good quality,

agreed objectives can the management of performance be fully

effective. It is vital that managers and their workers have agreement

on what to be achieved early in the year to ensure that each

individual had a clear line of what he or she is expected to

accomplish for the achievement of organizational goals.

Performance management at individual level provides a

structured, consistent and transparent evaluation system. It also

reinforces the feedback mechanism between appraiser and one

appraised. It generates information for sound decision-making.

62

A clear observation and study of the environment in which the

civil service operate in Enugu State, one could see characteristics of

the prismatic society. It was observed that the distinguishing

characteristics of the “Sala” bureaucracy accounts for its dismal

weakness in the inter-penetration of the elements of tradition and

modernity. In plain language this tradition according to Okpata

(2004) involves communal bonds, based upon diffuse emotional

identification and attachment among individuals of which the family

and the neighborhood group may serve as an example.

According to Okpata (2004), there existed weak bureaucracy

indices in Enugu State public service, such as weaken bureaucracy,

lack of patriotism, corruption, ghost workers syndrome, appointment

of unqualified and inexperienced officials, bribery and lack of proper

maintenance of men and material and political intrusion.

In the National Performance Review (NPB) version of the New

Public Management, ethics amounted to achieving results with a

high degree of customer satisfaction. The National Performance

Review discounted concern with corruption for two reasons. First, it

assumed that the overwhelming numbers of public employees are

good people. According to the National Performance Review (NPR),

People – in government or out – are, for the most part, neither crooked nor stupid. Most people want to do the right thing, so long as the right thing makes sense. Perhaps the most important thing about the reinvention initiative, and its regulatory reform work in

63

particular, is that it is based on a new assumption, that people are honest and that if you tell people what needs to be done, and let them get on with doing it, the chances are that it will be done better – and more cheaply – than if you tell them how. Moreover, it values them as human beings.

Treating honest and smart people as though they were crooked

and stupid binds them in pointless and harmful red tape. As the

National Performance Review put it,

This lack of trust in its own employees is one reason why doing almost anything in the government has always required a couple of dozen signatures; to be sure no one was cheating the taxpayer. Of course the process sometimes cost more than what was protected, but at least no one could be blamed if something went wrong.

Second, given that most are good, the cost of ferreting out and

deterring corruption is too high in terms of the red tape such efforts

create. In the National Performance Review’s words:

Innovation, by its nature, requires deviation. Unfortunately, faced with so many controls, many employees have simply given up. They do everything by the book – whether it makes sense or not. They fill out forms that should never have been created, follow rules that should never have been imposed, and prepare reports that serve no purpose – and are often never even read. In the name of controlling waste, we have created paralyzing inefficiency.

In short, the New Performance Review sought to replace many

of the accountability and ethics controls imposed on public

employees with a culture of trust.

64

The essential ingredient in bringing about so great a people-led change – indeed, the essential ingredient of self-government – trusts the people involved. In this case, that means government employees and the people they serve …

When we are not trusted, when nothing we say or do seem to make a difference, we feel powerless. Elections alone do not restore that power. The power that matters in a self-governing democracy is the power we can exercise “over-the-counter”, on a daily basis, whenever we interact with our government, whenever we seek to make our needs known. Someone must be listening. Someone must act.

This approach stands in remarkable contrast to the checks

and balances so carefully crafted by the constitution’s framers – as

the National Performance Review freely admitted.

The American Society for Public Administration (ASPA) exists

to advance the science, processes, and art of public administration.

The society affirms its responsibility to develop the spirit of

professionalism within its membership, and to increase public

awareness of ethical principles in public service by its example. To

this end, we, the members of the society, commit ourselves to the

following principles:

I. Serve the public interest; Serve the public, beyond serving

oneself. ASPA members are committed to:

(1) Exercise discretion authority to promote the public interest.

65

(2) Oppose all forms of discrimination and harassment, and

promote affirmative action.

(3) Recognize and support the public’s right to know the public’s

business.

(4) Involve citizens in policy decision-making.

(5) Exercise compassion, benevolence, fairness, and optimism.

(6) Respond to the public in ways that are complete, clear, and

easy to understand.

(7) Assist citizens in their dealings with government.

(8) Be prepared to make decisions that may not be popular.

II. Respect the Constitution and the Law.

Respect, support, and study of government constitutions and

laws that define responsibilities of public agencies, employees, and

all citizens. ASPA members are committed to:

(1) Understand and apply legislation and regulations relevant to

their professional role.

(2) Work to improve and change laws and policies that are

counter- productive or obsolete.

(3) Eliminate unlawful discrimination.

(4) Prevent all forms of mismanagement of public funds by

establishing and maintaining strong fiscal and management

controls, and by supporting audits and investigative activities.

(5) Respect and protect privileged information.

66

(6) Encourage and facilitate legitimate dissent activities in

government and protect the whistle blowing rights of public

employees.

(7) Promote constitution principles of equality, fairness,

representativeness, responsiveness and due process in

protecting citizens’ rights.

III. Demonstrate personal Integrity. Demonstrate the highest

standards in all activities to inspire public confidence and

trust in public service. ASPA members are committed to: -

(1) Maintain truthfulness and honesty and to not compromise

them for advancement, honour, or personal gain.

(2) Ensure that others receive credit for their work and

contributions.

(3) Zealously guard against conflict of interest or its appearance,

e.g., nepotism, improper outside employment, misuse of public

resources, or the acceptance of gifts.

(4) Respect superiors, subordinates, colleagues, and the public.

(5) Take responsibility for their own errors.

(6) Conduct official acts without partisanship.

IV. Promote Ethical Organizations. Strengthen organizational

capabilities to apply ethics, efficiency, and effectiveness in

serving the public. ASPA members are committed to:

67

(1) Enhance organizational capacity or open communication,

creativity, and dedication.

(2) Subordinate institutional loyalties to the public good.

(3) Establish procedures that promote ethical behaviour and hold

individuals and organizations accountable for their conduct.

(4) Provide organization members with an administrative means

for dissent, assurance of due process, and safeguards against

reprisal.

(5) Promote merit principles that protect against arbitrary and

capricious actions.

(6) Promote organizational accountability through appropriate

controls and procedures.

(7) Encourage organization to adopt, distribute, and periodically

review a code of ethics as a living document.

V. Strive for professional Excellence. Strengthen individual

capabilities and encourage the professional development of

others. ASPA members are committed to:

(1) Provide support and encouragement to upgrade competence.

(2) Accept as a personal duty the responsibility to keep up to date

on emerging issues and potential problems.

(3) Encourage others, throughout their careers, to participate in

professional activities and associations.

68

(4) Allocate time to meet with students and provide a bridge

between classroom studies and the realities of public service.

Enforcement of the Code of Ethics shall be conducted in

accordance with Article 1, Section 4 of American Society for Public

Administration’s (ASPA’s) Byelaws.

In 1981 the American Society for Public Administration’s

National Council adopted a set of moral principles. Three years later

in 1984, the Council approved a Code of Ethics for ASPA members.

In 1984 the Code was revised.

(Source: American Society for Public Administration, 1120 G. Street MW, Suite 700, Washington, DC 20005-3885. Available online at http://www.aspanet.org/scriptcontent/ index-codeofethics.cfm.)

The American Society for Public Administration’s ethical code

was broad enough to encompass each of the perspectives towards

public administration. What is obtained in Enugu State SERVICOM

and Performance improvement Bureau was an improvement if well

implemented. There was no time to be wasted, we had better started

now.

(d) Barriers to Performance Management of Civil Service in Enugu State

Barriers to performance management can be conceptualized as

being both personal and system based. In the personal realm, socio-

cultural, attitudinal, experiential and perhaps metabolic phenomena

69

contribute to one’s motivation and performance or the lack of it.

(Pearson 199:99).

Among systems, models, which relate to traditions, budgetary

issues, personality of the Chief Executive Officer, organizational

climate and management structure are foremost. Another barrier is

security of the status quo. Change can be threatening to system

and to individuals within the systems. The Chief Executive Officer

can promote or inhibit constructive change. Executives could make

change legitimate and valid. Thus, those executives who have a

commitment to change the status quo will expand the needed effort

to effect change.

According Ngwoke (2010: 23) quoting Pope Leo XIII, employers

have an obligation to pay just wages to their employees.

Let workers and employers make any bargain they like, and in particular agree freely about wages, nevertheless, there underlies a requirement of natural justice higher and older than any bargain voluntarily struck: the wage ought not to be in any way insufficient for the bodily needs of a temperate and well behaved worker. If, having no alternative and fearing a worse evil, a workman is forced to accept harder conditions imposed by the employer on contractor, he is the victim of violence against which justice cries out.

A bureaucratic roadblock is another barrier to performance

management. The problem of red tapes associated with the

bureaucracy is one which seems highly over flogged. However, the

70

frustrations which people meet every day in their interaction with

public bureaucracies are such that still call for emphasis on this

issue. Apart from the fact that many third world bureaucracies are

indolent and inefficient (like in Nigeria), all over the world, the

adherence to rules and regulations has made the bureaucracy to be

noted for its slow nature. Schaefer (2002:206), believe that

adherence to rule is quite in order but he argues that at times it over

shadows the large goals of an organization and becomes

dysfunctional. If blindly applied, they will no longer serve as a means

to achieving an objective but instead will become important (and

perhaps too important) in their own right.

Bureaucracy is inconsistent with democratic governance.

According to Onah (2000), bureaucracy is an anti thesis of

democracy. Although in literature, bureaucracy is efficiency, but if it

is compared with democracy, it is clearly seen that both principles

contradicts. Democracy is a government of compromise,

understanding and respect of all. Most of the time, people are

manipulated by those whom they elected into positions to rule, and

this situation has been described as “the illusion of democracy”

democracy involves supremacy of the people, supremacy of the

people in government. Obi and Chukwuemeka (2006: 112) observed

that it is obvious that inefficiency of civil service are discredits to the

democratic government in Enugu State are caused by the strict

adherence to the bureaucratic rules by the civil service thus, leading

to poor and belated policy making and subsequently Methuselah age

71

to be implemented all in the name of due process, while the

populace which consumes the outputs are in jeopardous state.

Non-performance behaviour of employees is absenteeism and

turnover. Workers who regularly absent themselves from their work

schedules are viewed as serious offenders. It attracts surcharge of

the officer’s salary to the extent of absence recorded for the offender.

No daily plan is another barrier to performance management.

Planning saves time and energy. It gives direction, assists with

decision-making and increases productivity. For every one minute

spent in planning, the time required to complete an activity is

reduced by three to four minutes (Clark and Clark, 1992: 28).

Factors affecting the performance of individual workers have

been described as a series of concentric circles. The model as

Pearson (1991: 99) established it as shown in figure 4.

Figure. 4: Performance: Concentric Model

Environment (Economy, Society)

Organization (Methods, Systems)

Work Group (Norms)

Individual Performance

72

Source: Roland Pearson (1991): The Human resource; Managing

people and work in the 1990’s.

Figure four (4) showed that at the centre of the model are the

workers themselves who are the traditional heroes of the productive

drama-personal performance are the subjects of cajolery, threats or

incentive schemes. The output of the individual is determined at this

level by personal motivation and skills. He noted that workers are

often unaware of the full range of their skills and the work for which

they are best fitted. He concluded, however, that the allocations of

workers to particular type of work are the responsibilities of

management – job analysis.

According to Performance Review Process, the impact of a

poorly structured performance management process is enormous.

They argued that if individual goals are not aligned with business

strategy, then time and resources are wasted. Low employee

engagement levels may mean that individuals are not performing at

their best. Also inconsistent evaluation criteria and rewards can

lead to mistrust, lower productivity and higher attrition. Levinson

(2003:13) argued that general lenience with poor performers, which

translates to unfair and bigger burden for good performers, is the

primary reason so many companies have turned to: forced ranking

as a performance intervention. If top performers see no

differentiation in performance ratings, opportunities and

compensation from underperformers, morale can suffer. Lack of

documentation, visibility, and accountability can negatively affect

stakeholders who are demanding more and transparence. If

73

accurate performance information is unavailable or difficult to

access, training and development decisions along with project

assignment decisions may not be made in the company’s or the

individual’s best interest. Most importantly, if management does not

understand the importance and value of the performance

management process, it can lead to consistently late or incomplete

appraisals, mistrust, avoidance of performance discussions, and

lack of honest performance-related discussions. Schaefer (2002:206)

agreed with the above assertions when he argued that adherence to

rules is quite in order but he argues that at times it overshadows the

large goals of an organization and becomes dysfunctional. If

performance management process is blindly applied, they will no

longer serve as a means to achieving an objective but instead will

become important (and perhaps too important) in their own right.

In 2003, Chief Vincent Azie was appointed as Acting Auditor

General of the Nigerian Federation for six months; he audited the

annual accounts of government bodies. He reported that most of the

accounts audited in 2002 were inaccurate and showed some

irregularities in mot audited institutions and federal bodies. His

report of 2003 showed that there was over-invoicing, non retirement

of cash advances, lack of audit inspection, payment for jobs not

done, double-debiting, contract inflation, lack of receipts backup

purchases made, brazen violation of financial regulations, release of

74

money without the approving authorities involved etc. The report

indicted all federal ministries for gross financial indiscipline and lack

of regards for laid down financial regulations (Azie 2003) sees Table

3.

Table 3: Ministries indicted by Vincent Azie (2003) Panel during his Audit of Nigerian Federal Ministries. S/No. Ministries indicted

1. Ministry of Works

2. Ministry of Transport

3. Ministry of Defense

4. Ministry of Education

5. Federal Ministry of Finance

6. Ministry of Internal Affairs

7. Ministry of Police Affairs

8. Ministry of Power and Steel

9. Ministry of Agriculture and Rural Development

10. Federal Civil Service Commission

11. Ministry of Water Resources

12. Ministry of Information and National Orientation

13. Ministry of Environment

14. Federal Ministry of Works and Housing

15. Federal Ministry of Water Resources

Source: Report of the Auditor General for the Federation (2001).

75

The above table shows the endemic nature under which

Nigerian public service found itself. For decades civil service has

mainly served the interests of bureaucrats and those engaged in the

accumulation of public resources for private gains. Despite the

increasing reported cases of corruption in the civil service, sanctions

are not effectively implemented. As a result, civil servants often are

not punished for offences such as misappropriation or misuse of

public funds.

(e) Remedies to the Challenges of Performance Management of Civil Service, Enugu State.

The push to reform the Civil Service of many countries and

organizations, Enugu State was precipitated by the realization that

bureaucracies are slow to react to the changing demands of

managerial, employee and customer needs. Condrey and Battaglio

(2007) identified certain factors that had impacted on public

organizations in recent years as an aging workforce, shrinking staff

resources, strategies that strive to achieve merit-based pay and

increasing service-delivery expectations. These elements have

produced concrete policy changes or what might be termed reforms

in the push to develop market-based incentives that would apply

private-sector management principles to government services.

According to Abiola (2012: 12) the Governor of Oyo State,

Abiola Adeyemi Ajimobi stated on 11th June, 2012 to his 12 newly

76

appointed Permanent Secretaries that his government has no place

for ‘corrupt civil servants’. Although he has no plans to sack

workers, he, however, re-emphasized that he will sack corrupt Civil

Servants; those stealing, those with fake certificates, those who are

inefficient and nepotism. He promised to reward hard work,

competence and not tolerate indolence under any guise.

Such government principles include decentralizing operations,

empowering employees with decision-making capabilities, and

embracing customer-friendliness (Kearney et al., 2000). Civil Service

Reform requires a commitment to establish a more professional Civil

Service with a stronger emphasis on performance and less

influenced by patrimonialism and ethnic loyalties.

In 1995 workshop on Civil Service reform in Africa, Langseth,

et. al., (1995: 29) observed that:

Civil society is important in reform: an effective civil society is required for an effective reform programme, because the pressure must come from the bottom. But in the absence of an empowered civil society, no pressure will be brought to bear on reforms. How does one break the vicious circle?

Most importantly, pressure from below would have little effect

on government performance without the backing of such internal

mechanisms of accountability prevalent in modern day democracies

(Clarke and Wood, 2001: 75). For sure, public concern about service

quality can have a major influence on government performance.

77

The Udoji commission was set up to correct the failures of the

earlier commissions. The Commission made the following

recommendations:

(1) The adoption of result oriented public service.

(2) The adoption of a unified Civil Service structure

(3) That administration should be transformed into management.

(4) That reward should be related to job content and performance.

(5) That merit should be the criterion for promotion.

(6) That public sector reward should be harmonized with private

sector reward.

(7) The adoption of modern management technique such as PPBS,

MBO and project management; and

(8) That personnel management to be modernized (Miclay, 2007).

The implementation of the recommendations of the report led

to upward review of salaries and wages of workers. Other

innovations include enhanced staff development programmes;

Institutes of administration of some universities were strengthened

to train professional Civil Servants.

Since the restoration of civil democratic rule on May 29, 1999,

the government has adopted some measures to restore the dignity

and glory of the Civil Service and place it in a proper position to

effectively perform its critical role in societal development. These

measures include:

78

(a) De-militarization of the Civil Service by:

(i) Ensuring that the system is guided by the relevant

provisions of the constitution, the Public Service Rules,

the Financial Regulations and circulars; and

(ii) Revisions of Rules, Regulations and procedures in the

civil service in a way that underscores Government

“concern for discipline and proper conduct and practices

by public officers in accordance with … rules … designed

to enhance fairness, accountability and good

governance”.

(b) Re-introduction of the polling system. The new polling system

is a qualitative development over those of pre-1988 Reforms in

that it:

(i) Ensures that officers, whether generalists or specialists,

are posted to where they will maintain and develop their

professional skills, thereby promoting professionalism;

(ii) Enhances a harmonized development and management

of common professional cadres;

(iii) Promotes healthy changes in the manning of ministries,

thereby injecting new ideas and fresh blood into the

system;

(iv) Helps to transfer skills and experience within the service;

79

(v) Broadens the world outlook and vision of Civil Servants

and develops esprit de corps throughout the service;

(vi) Promotes national unity and integration by ensuring that

staff of ministries reflect the ethnic, geographical,

religious and other divides of Nigeria; and

(vii) To correct the distortions in the placement of staff

arising from the 1988 Reforms.

(c) Correction of various distortions introduced by the 1988

Reforms: In this respect, the Government is implementing

most of the recommendations of the Ayida Review Panel on the

Civil Service Reforms. Main Reports but with qualitative

improvements to reflect the new political dispensation and

emerging global changes;

(d) The restoration of the Office of the Head of Civil Service of the

Federation which is helping to:

(i) Provide leadership, direction and favourable image for

the Civil Service;

(ii) Maintain the Civil Service political neutrality and

cohesiveness;

(iii) Promote high morale and esprit de corps amongst Civil

Servants;

(iv) Co-ordinate training policies and programmes;

(v) Improve staff welfare and development;

80

(vi) Manage common establishment matters;

(vii) Foster professionalism; and

(viii) Promote cordial and mutual relationship between the

political officers and Civil Servants.

(e) The institution of centralized coherent and systematic training

throughout the Civil Service to de-militarize the mentality of

Civil Servants, polish their administrative skills and develop

their professionalism. The new innovations in the training

programmes under the new dispensation are that:

(i) The training and retraining of Civil Servants, including

Permanent Secretaries, have been regularized;

(ii) It is now compulsory for all categories of staff to attend

some training programmes;

(iii) Career progression in the Civil Service is now tied to the

attendance of prescribed training courses;

(iv) There is extensive use of on-the-job and in-house

methods of training by ministries to capture, reflect and

address their specific requirements;

(v) Seasoned retired Civil Servants are now engaged, on

contract basis, to train and retrain Civil Servants on

time-tested skills and methods of Civil Service, as well as

share their experiences with serving Civil Servants; and

81

(vi) Training need assessments are undertaken before

training programmes are embarked on and after the

training examinations. This was not the tradition under

military dispensation.

(f) Comprehensive restructuring of the entire system. The

strategies the government has adopted to manage the reform

are:

(i) Separation of the office of the Head of Civil Service of the

Federation from that of the Secretary to Government of

the Federation as provided in the 1999 Constitution;

(ii) Restructuring of the office of the Head of Civil Service of

the Federation into five distinct components in a

mutually connected relationship;

(iii) Civil servant-driven implementation of reforms;

(iv) Return to the strict applications of extant rules and

regulations concerning recruitment and due process in

the conduct of Government business generally;

(v) Streamlining and coordination of intra and inter-

ministerial functions to achieve a common objective;

(vi) Liaison with other public services across the world (and

also multilateral organizations like the Commonwealth,

United Nations Department programmes, World Bank

etc. – (A.S.M. Babura);

82

(vii) Revisiting the structure and functions of Strategic Public

Service Departments such as National Planning

Commission and other professional Department

(Bamidele, 2007).

Despite the Government measures to restore the dignity and

glory of the Civil Service and the 1988 Civil Service Reforms much

has not been achieved. The lofty ideals of efficiency, professionalism,

accountability, and checks and balances, did not achieve its desired

objectives, especially in the area of promoting performance

management which invariably will promote sustainable human

development, which is an irresistible panacea for a more enhanced

and virile economic stability in any state including Enugu State

which is our focus.

Critical Analysis of the Impact of the reforms

These reforms starting from the Morgan Commission of 1963

to the Allision Ayida Panel f 1994, tried quiet a lot at improving the

civil service in Enugu State and these efforts are all geared towards

performance management or New Public Management but by 2005,

it was obvious that a result oriented civil service had not emerged in

Enugu State. The quality of the civil service was hampered by

cultural, structural, institutional and other management defects.

In Enugu State, governance is largely typified by expansion

patronage and authoritarian rule. Poor African countries perform

83

badly, considering the varying degrees they suffer from a number of

pathologies like inefficiency, centralization, fragmentation, and poor

leadership, lack of capacity, patrimonialism, corruption, poor

accountability and legitimacy. According to Ayoade (1988: 107-111),

the need to improve efficiency and accountability in Nigerian civil

service is therefore obvious. Unfortunately there is still uniform

centralized control of the service as was put in place by the colonial

masters although with little modification. It was effective for

Nigerians then to accomplish their mission but today it is no more

effective for us if we must meet the challenges of development in the

21st century. Enugu State, therefore, should decentralize her civil

service to a reasonable extent from the center to the out-post officers

so as to give them power to attend to emergencies as they arise.

Nigeria should borrow a leaf from some advanced countries like

Asian countries, France, US, Germany, Netherlands, and Canada

who have tremendously improved their civil service by making it

more clients public-oriented. They achieved this by using a model of

centralized control allowing a reasonable degree of decentralization,

flexibility and delegation of civil service management system. Enugu

State should emulate the above mentioned industrialized countries

by embarking on a search for ways to reduce civil service

expenditures and at the same time improve performance standards

in government t by adopting the “New Public Management (NPM)

84

Style” or the “New Managerialism”. It could do by way of adopting

process. Hood (1991), opined that major New Public Management

(NPM) doctrines are that (a) direct (B) private sector style

management practices must be applied to increase flexibility in

decision making (c) competition in the public sector must be

increased to help lower costs and better standards (d) the public

sector must be decentralized to make units more manageable and

productive (e) results should be stressed rather than procedure

(f) explicit standards and performance measure must be established

because accountability requires clearly stated aims and efficiency

requires attention to goals (g) managers must be given powers for

professional management, because accountability requires clear

assignment, of responsibility not diffusion of power. According to

Jann (1997:P 96), the New Public Management inspired measures

include reduction and refocusing of public sector functions through

staff reductions and changes in budgetary allocations, restructuring

of public organizations through reorganization of ministries,

decentralization, delinking or hiving-off of central government

functions to local governments other bodies or private sector etc.

Some examples of the countries that adopted cut back

management according to Nunberg (1995) included the United

States of America in the early 1980s. Dutch government’s

downsizing exercises reduced the civil service personnel by two per

85

cent per annum, in the mid 1980s, a Japanese programme to reduce

civil service staff by five per cent took place between 1986 and 1992,

and the United Kingdom’s reduction of civil service staff by 22 per

cent was between 1979 and 1989.

Workers often struggle with the government before they are

paid their minimum wage or living wage. Sometimes some States will

agree to pay, while some other Stats disagree to pay the minimum

living wage to the workers. If a salary regulatory body is established,

workers salaries would be adjusted based on the State of the

country’s economy and this will drastically reduce the frequency of

strikes, embezzlement, other corrupt practices, and low morale by

the civil servants. The argument that adequate pay is crucial for

sustaining the motivation, performance, integrity of public servants

had been widely accepted and documented (Kiragu et al., 2004: 109).

In Malasia, for example, a New Remuneration System has

been established which ensures that incentive packages are

regularly given to the workers. Still and, in particular personal

achievements are recognized and rewarded. In countries like, United

States of America, Australia and Germany, salary regulatory bodies

are established. In Botswana public service, a salary regulatory body

known as “Presidential Salary Review Commission” has been

instituted to regulate the salary of workers in line with the State of

the country’s economy (Anazodo, Okoye, and Chukwuemeka, 2012).

86

Many of the practices that support performance also positively

impact job satisfaction, employee retention and loyalty. Recommended

practices include:

(1) Delivering regular relevant job feedback

(2) Setting and communicating clear performance expectations

(3) Linking performance to compensation clearly

(4) Identifying organizational career paths for employees

(5) Evaluating performance and delivering incentives manner

(6) Providing appropriate learning and development opportunities

(7) Recognizing and rewarding to performances (Watson Wyatt’s Human

Capital index-Work USA 2004).

According to Astrazeneca (2004) gave four principles that will govern

the structures, processes and systems and behaviours for performance

management include:

(1) Aligned objectives – they maintained that individual, department/

function and team objectives are cascaded and aligned with current

business objectives so that everyone is working towards the same

overall objectives in the most effective manner. This will help workers

to know what is expected of them and how this helps to deliver overall

business objectives. Managers are accountable for ensuring that

individual and team objectives are clear, relevant, measurable and

documented. Managers will encourage and support managed risk-

taking, creativity, innovation and challenge when agreeing on

individual’s objectives.

(2) Joint Responsibility – individuals, managers and project leaders are jointly

responsible for the effectiveness of the performance management process. Managers

are accountable for creating a challenging and supportive environment in which all

87

individuals are able to give of their best performance, and for ensuring a reasonable

total workload for individuals. Individuals, managers and project leaders must have an

equal commitment to the objectives set, including agreeing the means by which to

achieve them. In addition to meeting their own objectives, individuals are expected to

support others in delivering outstanding team performance.

(3) Constructive Conversations – there is open and honest dialogue between

individuals, managers and project leaders. Individuals, managers and project leaders

need to have frequent, clear, open and fair conversations with each other about the

level of performance they are achieving and also how they work together. There

should be clear, open and honest conversations about learning and development needs,

and about aspirations and opportunities for growth and development, and plans agreed

to meet these needs. Where an individual’s performance and/or behaviour are not to

the required standards, the manager will discuss this promptly with the individual and

will work with him/her to address this.

(4) Reviewing and Rewarding Performance- everyone in Astrazeneca Company

was given the opportunity to understand the link between their performance and their

reward and recognition. Managers would communicate openly performance

management and Global Remuneration principles. Managers and project leaders

would demonstrate capability to carry out their performance management and reward

responsibilities. There will be a demonstrable link between an individual’s

performance and the level of reward and recognition they achieve. Astrazenca will

deliver higher rewards to higher-performing individuals, and also reward contribution

to team performance.

Source: Astrazenrce (2004) Astrazeneca Performance Management Principles, Astrazeneca.

88

2.1 Gap in Literature

During Dr. Nnamani’s tenure as Enugu State former

Governor and Barr. Sullivan Iheanacho Chime as his predecessor,

no previous study of this researcher’s contact had been in Enugu

State on such uninterrupted democratic era.

Barrister Sullivan Chime, the present democratically elected

Governor had made great attempt to sustain this tempo. He had

been using the civil service which is a government institution to play

his important role of ensuring that government policies result in

tangible services for the entire population of Enugu State. From the

literature review, no previous work had been written or presented on

performance management of civil service, Enugu State within the

period under review. This study has been designed to fill these gaps

in the literature.

2.2 Theoretical Framework

One of the explicatory theories upon which performance

management is based is Goal-setting theory. Goal-setting theory

(Locke and Latham 1990), is a theory of motivation to explain

human action in specific work situations. A goal is an objective that

a person is trying to accomplish through his or her efforts (Locke et

al., 1981: 126). Goals motivate the individual employee (Locke and

Latham, 1990) by:

− Directing one’s attention;

89

− Regulating one’s efforts;

− Increasing one’s persistence;

− Encouraging the development of goal-attainment strategies or

action plans.

Direction (or focus), effort regulation (e.g. meeting deadlines),

persistence (or determination) and goal-attainment strategies and

action plans have a positive impact on the task performance of an

individual employee. Locke (2003: 116-21) summarizes the most

important findings and assumptions of the goal setting theory in

empirical studies as follows:

1. Setting Clear Goals:

This finding suggests that when one’s goal is clear, one can

know what he/she is trying to achieve. One can also measure

results accurately. It will also help one to know which behaviour is

to be rewarded or not. It is important to b e as specific as possible

about the goals for an employee. This way the employee can focus.

The goal-setting effects are stronger for easy tasks than for complex

tasks. Vague goals such as ‘do your best’ – or when you express a

goal as a general instruction like ‘take initiative’ – it is not easy to

measure, and it is not motivating, so it should be avoided.

90

2. The more difficult the goal, the greater the achievement

People are often motivated by challenging goals; however it is

important not to set a goal that is so challenging that it cannot be

achieved.

3. Securing Team Commitment:

The front-line manager or direct supervisor can play an

important role in convincing employees of the goal relevance

especially if they have been involved in setting it. Locke (2003: 116)

explains that when goals are easy and vague, it is not difficult to get

commitment, because it does not require much dedication to reach

easy goals, and vague goals can be easily redefined to accommodate

low performance.

4. Gaining Feedback:

Goal-setting is most effective when there is feedback showing

progress in relation to the goal. It helps when employees are given

feedback on their performance, in particular feedback on improving

their performance in the direction of the ultimate goals. This is also

known as ‘knowledge of score’ (Locke, 2003).

5. Considering Task Complexity:

One should take special care to ensure that work does not

become too overwhelming when goals or assignments are highly

complex. People who work in complicated and demanding roles can

often push themselves too hard, if they do not take account of the

91

complexity of the task. If one notice that any team members are

overwhelmed, consider putting them into a coaching or monitoring

relationship with a more experienced colleague.

Goal setting theory as proposed by Edwin Locke (1968)

suggested that the individual goals established by an employee

play an important role in motivating him for superior performance.

This is because the employees keep following their goals. If these

goals are not achieved, they either improve their performance or

modify the goals and make them more realistic. In case the

performance improves it will result in achievement of the

performance management system aims (Salaman, et al., 2005).

Locke’s research showed that there was a relationship between how

difficult and specific a goal was and people’s performance of a task.

He found that specific and difficult goals led to better task

performance than vague or easy goals.

2.3 Justification for the adoption of the Theory:

The Locke and Latham (1990) goal-setting theory of

motivation is relevant to our study of performance management of

civil service in Enugu State.

Goal setting is something that many recognize as a vital part

of achieving success. A practical application of the goal-setting

theory is offered by Kinicki (1992, in Kreither et al., 2002) which

92

states that goals should be Specific, Measurable, Attainable, Result-

oriented and Time-bound (SMART).

− Specific: goals should be formulated in precise terms;

vagueness should be avoided.

− Measurable: goals should be measurable and measurement

device can be very helpful in doing so.

− Attainable: goals should be realistic, challenging and

attainable in the perceptions of those who are submitted to it.

Impossible goals should be avoided because these cause

decreasing employee motivation.

− Result-oriented: the goals should be in line with the

corporate goals, with a focus on desired end results in line

with the business strategy.

− Time-bound: goals should be linked to specific target dates

for completion.

To use this too, set clear, challenging goals and commit

yourself to achieving them. Be sure to provide feedback to others on

their performance towards achieving the goals and reflect on your

own progress as well. Also consider the complexity of the task, and

break your goals down into smaller chunks, where appropriate. If

we allow these simple rules, our goal setting will be much more

successful, and our overall performance will improve.

Despite the contributions of Locke and Latham to the

understanding of performance management, it has been criticized

93

by many scholars. Some scholars argued that it is too technical and

that it can be only work in Japan and other countries that have well

established team workers. Others argued that the present level of

development of Enugu State civil service may not allow the theory

to work well. Also there is the problem of individuals who may be

tempted to take risky actions in pursuit of their goals, which could

potentially lead to failure rather than success. Whatever may be the

views of the critics, it is the strong contention of the researcher that

the Goal Setting theory can be successfully applied in Enugu State

in the following ways: The theory guided us in this work as it

showed how workers could set clear and objective goals. The Goal

setting theory also aided our work as workers were in a good

position to ascertain if they are contributing towards the

achievement of business strategy or not. The process of Goal

Setting as used in this work enabled departmental managers well

focused on their goals as based upon organization-wide goals,

which support the general business strategy. The Goal

Setting framework provided clarity up front to employees who will

be evaluated against these goals.

It is the belief of the researcher that lack of accomplishment

of goals leads to job dissatisfaction. Thus, Goal setting theory can

be useful in predicting job satisfaction. Job satisfaction is an

important attribute for employee productivity and commitment to

94

the organization. It is also important to state that one of the

components of goal setting theory is its measurability. Goals must

be stated in some measurable terms so that the person attempting

to achieve the goal and those who may be measuring and

evaluating performance can tell when the goal has been met.

2.4 Hypotheses

(1) Performance management in Enugu State civil service is

significantly enhanced through training of staff, promotions,

high salaries, and housing and car loans.

(2) Staff appraisal contributed positively towards workers

performance in Enugu State civil service.

(3) There exist significant measures that can be employed to

(4) enhance performance management in Enugu State civil

service.

2.5 Operationalisation of Key Concepts

Performance Management

Performance management is a continuous process of

identifying, measuring and developing the performance of

individuals and aligning performance with the strategic goals of the

organization (Aguinis, 2009).

Civil Service is the bedrock of the executive arm of government,

charged with the task of implanting and executing the policies

decided by the political authorities (Adesayo, 2000: 107).

95

Management: Grifin (1997) defines management as a set of

activities (including planning and decision-making, organizing,

leading and controlling) directed at an organizations resources

(human, financial, physical, and information) with the aim of

achieving organizational goals in an efficient and effective manner.

Bureaucracy:

Bureaucracy, according to Max Weber and Peter Blau (1918) is

a form of organization designed to accomplish large-scale

administrative tasks by a systematic coordination of the work of

many individuals. Bureaucracies in one form or the other are

inescapable feature of modern, complex societies, and the basic

instrument for implementing the purposes of government or any

other (systematically) organized activity.

Motivation:

It is the forces determining the behaviour of an employee in

relation to performing or slacking in the performance of his or her

work at the workplace. In other words, it is the intrinsic (internal)

and extrinsic (external) forces that make an employee either

productive or not in his or her workplace.

Performance:

According to Business Dictionary, it is the accomplishment of

a given task measured against present known standards of

96

accuracy, completeness, cost, and speed. In a contract performance

is deemed to be the fulfillment of an obligation, in a manner that

releases the performer from all liabilities under the contract.

Productivity

It is the rate at which an employee/employees or an

organization produces good or delivers services, and the amount

produced or performance deliverance in relation to the time spent,

money and work expended on the task. We use productivity in the

discourse to imply highest level of performance on the part of an

employee.

97

CHAPTER THREE

3.0 STUDY AREA AND RESEARCH PROCEDURE

3.1 Study Area: Enugu State

Enugu State, South-East of Nigeria, is one of the thirty-six

States constituting the Federal Republic of Nigeria. It came into

being on 27 August, 1991 when the administration of the then

Military President, General Ibrahim Babangida, finally acquiesced

to the long agitations of Wawa people for a State they could truly

call their own. Enugu State derives its name from the capital city,

Enugu (top of the hill), which is regarded as the oldest urban area

in the Igbo speaking area of South-East Nigeria. The discovery of

the solid mineral in the area brought about the emergence of a

permanent cosmopolitan settlement which influenced the

construction of a railway line to link the Enugu coal fields with the

seaport in Port Harcourt for the evacuation of the mineral to

Europe. In fact, by 1917 Enugu had acquired township status and

assumed strategic importance to British interests. Foreign

businesses began to move into Enugu, the most notable of which

were John Holt, Kingsway Store, United Bank of West Africa and

United African Company. By 1929, Enugu had become the capital

of the former Eastern Region, and has since then retained its old

status as the regional industrial and business hub as well as the

political capital and rallying point of the Igbo people.

98

Geographical Location

Situated on much of the highlands of Awgu-Udi-Nsukka hills

and the rolling low lands of the Idodo River basin to the West, the

State is bounded by five other States with which it shares common

boundaries. It spreads southwards to the borders with Abia and

Northwards to Benue States. Apart from a chain of low hills

running through Abakaliki in neighbouring Ebonyi state in the East

to Nsukka in the West and then Southwards through Enugu and

Awgu, the rest of the State is made up of low lands, crisscrossed by

numerous streams and rivulets of which the major ones are the

Adada, Oji, Ekulu, Nyama, Nvene and Agalli Rivers (2010 Enugu

State Diary: The Government Printer, Enugu).

The People

Enugu state has a population of 3,257,298 (2006 census)

with a population density that is two and a half times the national

average. Its people are Igbo by ethnic grouping. They are widely

known to be hospitable, very resourceful and hard-working. Skilled

manpower resources are therefore readily available in almost every

sphere of human endeavour.

Politics

The State Government and the Local Government are the two

levels of governments in Enugu State and in all other States of

Nigeria. Barrister Sullivan Chime is the current Executive Governor

99

of Enugu State. The State comprises three geo-political zones

namely: Enugu North, Enugu South and Enugu East geo-political

zones.

Administrative Divisions

The Local Government Law (2000) divided Enugu State into

17 Local Government Councils. These include Aninri, Awgu, Enugu

East, Enugu North, Enugu South, Ezeagu, Igbo-Etiti, Igbo-Eze

South, Igbo-Eze North, Isi-Uzo, Nkanu East, Nkanu West, Nsukka,

Oji River, Udenu, Udi and Uzo-Uwani. The Local Government is a

creation of the Constitution of the Federal Republic of Nigeria of

1999. It is the third tier of government and often regarded as

government at the grassroots level. A further 39 local government

Development Centers were created in 2004 which have since been

redesignated as Local Government Development Areas (LGDAs).

Economy

Economically, the State is predominantly rural and agrarian,

with a substantial proportion of its working population engaged in

farming, although those for trading (18.8%) and those for services

delivery (12.9%) are also important. In urban areas, trading is the

dominant occupation, followed by services. A small proportion is

also engaged in manufacturing activities, with the most pronounced

among them located in Enugu, Oji and Nsukka.

100

Educational Facilities

Eze and Okafor (2009) remarked that every community in

Enugu State has at least one primary school and one secondary

school, funded and run by the State Government. There are also

large numbers of private nursery, primary and secondary schools in

Enugu State. Nigeria’s first indigenous University, University of

Nigeria, Nsukka is located in Enugu State. The State also hosts the

Enugu State University of Science and Technology (ESUT), Institute

of Management and Technology (IMT) Enugu, State College of

Education Technical, Caritas University Amorji, Nike, Renaissance

University, Ugbawka, Federal College of Education, Eha-Amufu,

Federal Government College, Enugu, Federal School of Dental

Technology & Therapy Enugu, College of Immaculate Conception,

Enugu among others. The Website on Enugu State equally revealed

that there are also a host of private computer schools and training

centres concentrated in Enugu and Nsukka. There is also a

deliberate policy for the promotion of computer education at the

early stages of formal education.

Health Facilities

The University of Nigeria Teaching Hospital (UNTH), one of the

foremost teaching hospitals in Nigeria, is located in Enugu State. So

also is the state-of-the-art Enugu State University Teaching

Hospital and College of Medicine at Park Lane, GRA, Enugu. In

101

addition to the numerous private hospitals and clinics in the State,

there are seven District Hospitals in Enugu namely Udi, Agbani,

Awgu, Ikem, Enugu-Ezike and Nsukka. There is also at least one

health centre or cottage hospital in every one of the seventeen (17)

Local Government Areas and thirty-nine (39) Development Areas in

the State.

According to Amujiri (1999: 49) the evolution of Enugu State

Civil Service could be said to have passed through five distinct

stages. These are as follows: -

(a) As part of a Civil Service that was largely oriented

towards provincial administration between 1914 and

1946.

(b) As part of a regional Civil Service from 1946 to 1967

when the military took over the reins of government and

States were created.

(c) As part of the East Central State Civil Service from May

1967 to February 1976 when the country, still under

military government, was broken into 19 State

structure.

(d) As part of the Civil Service of the former Anambra State,

after the creation of State in February 1976.

(e) And as the Civil Service of the present Enugu State after

the creation of States in August 1991.

102

The Enugu State Civil Service is made up of Nineteen

Ministries, wherein each ministry has a Commissioner as the Chief

executive and Permanent Secretary as the accounting officer. They

work in concert with the Secretary to the State Government and

Head of Service to supervise and co-ordinate the implementation of

government policies and programmes. These ministries are:

(a) Ministry of Agriculture and Rural Development

(b) Ministry of Chieftaincy Matters

(c) Ministry of Commerce and Industry

(d) Ministry of Education

(e) Ministry of Environment and Mineral Resources

(f) Ministry of Finance and Economic Development

(g) Ministry of Gender Affairs and Social Development

(h) Ministry of Health

(i) Ministry of Human Development and Poverty Reduction

(j) Ministry of Information, Culture and Tourism

(k) Ministry of Justice

(l) Ministry of Lands and Housing

(m) Ministry of Local Government Matters

(n) Ministry of Rural Development

(o) Ministry of Science and Technology

(p) Ministry of Transport

103

(q) Ministry of Water Resources

(r) Ministry of Works and Infrastructure

(s) Ministry of Youth and Sports

The Enugu State Civil Service Commission has the following

Departments:

(a) The Chairman’s Office

(b) Permanent Secretary’s Office

(c) Administration

(d) Finance and Accounts

(e) Planning research and Statistics

(f) Appointments

(g) Promotion, Discipline and Appeals.

The above Departments in the Civil Service Commission carry

on the following functions: Appointment of Civil Servants,

confirmation of appointments, Civil Service promotions and career

progression, discipline, implementation of Civil Service Rules and

Regulations. The Civil Service operates a unified grading system in

which all positions in the service were graded from levels 01 -17,

Grade Level 01 being the lowest grade while level 17 the highest

position in the Civil Service. (See Appendix 4).

104

MAP OF ENUGU STATE

105

3.2 Research Procedure

3.2.1 Research Design

The study combined the documentary and a sample survey

research design. Information was gotten from existing documents

related to the topic and information in the libraries. A sample

survey was used to consolidate and provide more in-depth and

specific information from the State civil service and the citizens of

the State.

The research design of this study was the survey research

design. It helped us to ascertain the boundaries of our research

activity and enabled us to channel our energies in more specific

directions.

3.2.2 Source of Data Collection

The major method of data generation for this study was the

primary and secondary sources. These included relevant materials

which were sourced from both public and private libraries. These

included books, journals, mimeographs, summary of workforce in

both ministries and Departments; Civil Service Rules, White papers,

Newspapers and Internet sources. The use of structured interview

helped to source out information from our respondents. The

interview was administered to 240 serving senior officers, 125

middle cadres, 100 management staff and 40 heads of departments.

106

The instrument for data collection was 28-item structured

interview questions. The questions had three clusters: Cluster A

sought information on training, retraining of staff, promotions,

adequate housing and car loans on the performance management of

Enugu State civil service. Cluster B focused on the obstacles

associated with workers performance management appraisal of

Enugu State civil service staff and Cluster C was on the effects of

corrupt practices and neglect of Enugu State civil service.

3.2.3 Population of the Study

The population of this study was made up of the totality civil

servants in Enugu State as could be found in the Ministries and the

Civil Service Commission. According to Secretary to the State

Government letter Ref. ENS/SSG/ECA/CON/164/S.9/16 dated

30/11/10 the population of Civil Servants working in Ministries,

Parastatals and other agencies in Enugu State as at 31st December,

2011 are as follows in the table overleaf.

107

Table 4: Population of Enugu State Government Ministries and Parastatals.

S/No. Ministries/Commissions Population

1. Ministry of Agriculture and Rural Development

531

2. Ministry of Chieftaincy Matters 511

3. Ministry of Commerce and Industry 173

4. Ministry of Education 715

5. Ministry of Environment & Mineral Resources 323

6. Ministry of Finance & Economic Development 387

7. Ministry of Gender Affairs & Social Development

226

8. Ministry of Health 2,700

9. Ministry of Human Dev. & Poverty Reduction 86

10. Ministry of Information, Culture & Tourism 173

11. Ministry of Justice 211

12. Ministry of Lands and Housing 354

13. Ministry of Local Government Matters 122

14. Ministry of Rural Development 25

15. Ministry of Science & Technology 38

16. Ministry of Transport 64

17. Ministry of water Resources 54

18. Ministry of Works and Infrastructure 1,427

19. Ministry of Youth and Sports 1,110

20. Civil Service Commission 870

Total = 10,100

(Enugu State MDA Organization and Functions Draft 3: November,

2010)

108

3.2.4 Sample and Sampling Procedures

Using Nwana (1981: 70-71), quoted in Obasi (1991: 115),

which indicated that if the population of a study was a few

hundreds, a 40% or more sample will suffice. But, if many

hundreds, a 20% while, if several thousands, a 5% or less sample

suffices.

Sample:

Table 5: Sample of Ministries of Enugu State Civil Service

S/No. Ministries/Commissions Population

1. Ministry of Education 715

2. Ministry of Human Dev. & Poverty Reduction 86

3. Ministry of Justice 211

4. Ministry of Environment & Mineral Resources 323

5. Ministry of Works & Infrastructure 1,427

6. Ministry of Transport 64

7. Ministry of Finance & Economic Development 387

8. Civil Service Commission 770

Total = 4,080

(Enugu State MDA Organization and Functions Draft 3: November 2012)

Based on this, the study took (five percent) 5% sample from

the population.

Population = 10,000

Percentage = 5

Sample size = 5001

10,000 x

100

5 =

109

Sample size was arrived at by a purposive sampling from

where a proportionate sample of 505 comprising 240 serving senior

officers, 125 middle cadre officers, 100 management staff and 40

heads of different departments were selected using five percent of

the population.

3.2.5 Method of Data Collection

The following instruments of data gathering were used in this

research. They included: Documentary instrument and interview

questions.

(a) Documentary Instrument

The documents we got from this source included those

dealing with appointments, recruitment, transfers, promotions and

dismissals. It also included: Civil Service Rules, White Papers,

Internet sources, Books and Journals.

(b) Interview Instrument

The interview instrument for data collection was a 28-item

structured question. The questions had three clusters. Cluster A

(S/No. 1-8) sought for information on evaluation of training and

retraining of staff, promotions, and adequate housing and car

loans. Cluster B (S/No. 10-20) sought for information on the

obstacles associated with workers performance management

appraisal. Cluster C (S/No. 21-31) asked questions on the

hindrances that impede on the measures employed by Enugu State

110

Government on the performance management of civil service in

Enugu State. (See Tables 11, 12 and 13).

3.2.6 Reliability and Validity of Instruments

The multiple data-gathering instruments employed in this

study helped to serve one common purpose, namely, improving the

reliability and validity of the findings. To ensure reliability, we used

item discriminatory analysis which was part of internal consistent

method of measuring instrument (Obasi, 1999: 128). The

instruments were validated by three experts: One in Human

Resource, one in Educational Psychology. The reliability coefficient

of the instrument was computed using Crombach Alpha procedure

which gave reliability estimates of 0.69, 0.54 and 0.77 respectively

with an overall reliability index of 0.68.

3.2.7 Method of Data Presentation and Analysis

In this study, primary data collected through interviews and

observations were analyzed through descriptive and quantitative

means. The quantitative data used involved using relevant-

statistical tools such as tables and simple percentages while the

descriptive tool was used in analyzing data collected through

interviews and observations. We also made use of the means, and t-

test in analyzing our work.

The formula for –test is given below:

t =

2

22

1

21

21

n

S

n

S

XX

+

−

where:

1X = Mean of first set of values

111

2X = Mean of second set of values

1S = Standard deviation of first set of values

2S = Standard deviation of second set of values

1n = Total number of values in first set

2n = Total number of values in second set

The formula for standard deviation is given by:

S = 1n

X)(X 2

−−∑

Where: X = Values given

X = Mean

112

CHAPTER FOUR

DATA PRESENTATION, ANALYSIS AND FINDINGS

Introduction

This chapter deals with the data Presentation, Data Analysis

and Findings.

4.1 Data Presentation and Analysis

The data for this research was presented in two sections

according to the questionnaire.

Section I was the analysis of personal characteristics of

respondents and Section II was done in accordance with the

respondents’ opinions as obtained from the interview questions.

A total number of five hundred and five were interviewed.

This number served as the working population for the analysis. The

decision criteria was: any variable with mean (x) less the 3.00 was

Strongly disagree while variables with Mean (x) rate of 3 – 7 the

results were presented in percentages, while tables 8 – 10 were

presented in Mean.

Table 6: Sex distribution of the Respondents N = 500

SEX FREQUENCY PERCENTAGE

Male 280 56

Female 220 44

Total 500 100% Source: From Field Work 2013

113

Table 6 shows the sex distribution of 500 respondents used

for the study. Out of 500 respondents, 56% were males, while the

remaining 44% were females. The study, therefore, involved more

men than women.

Table 7: Status distribution of staff N = 500

STATUS FREQUENCY PERCENTAGE

Senior 440 88

Junior 60 12

Total 500 100%

Source: From Field Work 2013

Table 7, revealed that 88% are senior staff, while the

remaining 12% are junior staff. The study is skewed in favour of

senior staff.

Table 8: Marital status distribution of respondents

MARITAL STATUS FREQUENCY PERCENTAGE

Single 20 4

Married 460 92

Divorced - -

Widowed 20 4

Separated - -

Total 500 100%

Source: From Field Work 2013

From the above table, 4% are single; 92% are married, nil

percentage is divorced; 4% are widowed and nil percent are

separated. From the pattern of distribution, it is clear that the

study involved more married people than those who are single.

114

Table 9: Distribution of educational qualifications of the respondents

EDUCATIONAL QUALIFICATIONS FREQUENCY PERCENTAGE

F.S.L.C. - -

WASC/GCE - -

OND/NCE 60 12

HND/DEGREE 260 52

M.Sc/M.A. 160 32

Ph.D 20 4

Total 500 100%

Source: From Field Work 2013

The table 9 above shows that 12% of the respondents are

OND or NCE holders; 52% of the respondents are degree holders or

its equivalent, while 32% are holders of Masters Degree; 4% of the

respondents are PhD holders while F.S.L.C. and WASC/GCE had

nil responses.

From the distribution, it is quite clear that there are

reasonable numbers of well-informed civil servants in the state

capable of interpreting civil service rules and regulations.

Table 10: Age Distribution of the respondents. N = 500

AGE FREQUENCY PERCENTAGE

15 – 24 - -

26 – 34 20 4

35 -44 160 32

45 – 54 200 40

55 – 64 100 20

65 – 70 20 4

Total 500 100 Source: From Field Work 2013

115

The table 10 above, revealed that respondents between ages of

45 – 54 were 40%, those between 35 – 44 were 32%, 20% were

respondents between ages 55 – 64, those between 26 – 34 years of

age were 4%, ages 65 – 70 were 4%, whiles 15 – 24 were nil.

This shows that the Enugu State civil service have vibrant

work force (ages 35 – 54), capable of carrying out any reasonable

responsibility for the development of Enugu State in general.

116

Table 11: Results and Summary of interview on evaluation of training and retraining of staff, promotions, and adequate housing and car loans on the performance management of civil service in Enugu State

Source: From Field work 2013

S/No

Items M

ean

Sta

ndard

D

evia

tion

t-vale

Pro

b-v

alu

e

Decision

1. Is Enugu State civil service having the required trainings and retraining of staff to meet up with the required performance management system.

2.32 1.32 39.3 0.00 Significantly disagree

2. Is the management level able to show clearly what the job holders will do in terms of achieving organizational goals?

1.76 0.81 48.3

0.00 Significantly disagree

3. Do workers in Enugu State civil service receive higher pay than their counterparts in other States in order to boost their performance?

1.2 0.51 0.574 0.00 Significant, disagree

4. Is the Senior Public Service in Enugu State civil service playing its full role of providing leadership and management without political interference?

1.24 0.65 42.6

0.00 Significantly disagree

5. Civil service staff in Enugu State is being promoted as a result of worker’s performance.

1.88 0.86 48.6

0.00 Significantly disagree

6. Enugu State have a regulatory body that are uncharged of the workers’ salaries and this body curbs any struggle that may arise between government and the workers.

1.12 0.43 58.1

0.00 Significantly disagree

7. Workers in Enugu State civil service compete favourably with other workers in the public/private sectors for service delivery.

3.6 1.23 50

0.00 Significantly disagree

8. Has Enugu State increased the remunerations and incentives of her workers on individual or collective basis.

3.84 1.29 49.3

0.00 Significantly disagree

9. Overall average for testing of the performance management on training, and retraining of staff, promotions, adequate housing and car loans.

1.95 0.37 48.55 0.00 Significantly disagree

117

Table 11 overleaf contained responses to the question

aimed at ascertaining the answers on cluster A. This seeked to

know the training, retraining and staff, promotions, adequate

housing and car loans on the performance management of

Enugu State civil service. On the question whether Enugu

State civil service had adequate training and retraining of her

workers, the respondents showed that the mean average of

respondents was 2.32 with a probability as low as 0.00 (lower

than 0.05) and a high t-statistics of about 39.3 (higher than

1.96). This showed that the respondents significantly

disagreed that workers of Enugu State civil service were

adequately trained and retrained. They thus clamoured for

considerable increase in the training and retraining of workers.

Whether the management cadre of Enugu State civil

service was able to show clearly working apparatus whereby

the job holders were able to verify if they were on course in

achieving the organizational goals, was seriously looked into.

In the course of this research, an average mean of 1.76 with a

probability as low as 0.00 (lower than 0.05) and a high t-

statistics of about 48.3 (higher than 1.96) were discovered.

This showed that the respondents significantly disagreed that

the management level could put such measurement apparatus in

place and this made it very difficult for workers to know if they had

satisfied their performance goals or not.

118

On the response that workers of Enugu State civil service

received higher pay than their counterparts in other States of

Nigeria, a mean average of 1.2 with a probability as low as 0.00

(lower than 0.05) and a high t-statistics of about 0.57 (lower than

1.96) were discovered. This showed that the respondents

significantly disagreed that Enugu State civil service were paid

higher than their counterparts in other States of the federation

On the question whether the senior public service cadres

played their full role of providing leadership and management

devoid of political interference, an average mean of 1.24 with a

probability as low as 0.00 (lower than 0.05) and a high t-statistics

of about 42.6 (higher than 1.96) was scored. This showed that the

respondents significantly disagreed that the senior public service

cadre in Enugu State civil service did not provide the leadership

role and management devoid of political interference.

For the question on whether members of Enugu State civil

service staff were promoted as a result of their work performance

indices, the answer given showed that an average mean of 1.88 with

a probability as low as 0.00 (lower than 0.05) and a high t-statistics

of about 48.6 (higher than 1.96) were given. This showed that the

respondents significantly disagreed that the workers were promoted

as a result of their work-performance indices. The respondents

responded that Enugu State had no regulatory body that was in

charge of the workers’ salaries that should curb struggles that

might arise between government and workers. An average mean of

119

1.2 with a probability as low as 0.00 (lower than 0.05) and a high t-

statistics of about 58.1 (higher than 1.96) were given.

A mean average of 3.6 with a probability as low as 0.00 (lower

than 0.05) and a high t-statistics of about 58.0 (higher than 1.96)

were given on the question that Enugu State civil service competed

favourably with other workers in the public/private sectors for

service delivery. This showed that the respondents significantly

agreed that they did not compete favourably with their counterparts

in other public/private sectors of the economy.

The respondents significantly disagreed that Enugu State

government had increased the remunerations and incentives with

an average mean of 3.84 with a probability as low as 0.00 (lower

than 0.05) and a high t-statistics of about 49.3 (higher than 1.96).

Documentary evidence at Enugu State Ministry of Establishment

confirmed that the minimum wage issue had not been resolved (see

Table 14).

On the overall indices that were aimed at investigating the

enhancement of Enugu Sate civil service through training,

retraining and promotion if members of staff as well as adequate

housing and car loan had an average mean of 1.95 with a

probability index as low as 0.00 (lower than 0.05) and a high t-

statistics of about 48.6 (higher than 1.96). This showed that the

respondents significantly disagreed on a general note that workers

in Enugu State civil service had the required training, retraining of

staff, promotions, adequate housing and car loans. This was further

confirmed by our documentary evidence which showed that workers

120

were not motivated through study leave with or without pay and other

training programmes (see Table 14).

Table 12: Respondents’ opinion on obstacles associated with workers’ performance management appraisal which impeded performance management on civil service in Enugu State.

Source: From Field Work 2013

S/N

o

Items M

ean

Sta

ndard

D

evia

tion

t-vale

Pro

b-v

alu

e

Decision

10. Do Enugu State civil service have performance management system which seeks to enhance performance at all levels by focusing on key areas of activity/ services to e delivered which are identified through strategic planning process?

2.44 1.02 53.3 0.00 Significantly disagree

11. Has the head of sections/unit plan based on key Result Areas assigned by the supervising officer?

3.52 1.33 59.1 0.00 Significantly disagree

12. Do the workers of Enugu State civil service being able to be monitored during the appraisal period and documenting performance and communicating and providing feedback?

4.04 1.22 74.22 0.00 Significantly disagree

13. Supervisors do not keep performance registers of their workers and know how and when he meets up with the set goals.

4.32 0.97 99.7

0.00 Significantly agree

14. Enugu State does not give Awards regularly for outstanding work performance which had impact on public interest.

4.44 0.98 100.9

0.00 Significantly agree

15. Supervision of staff in Enugu State civil service had not helped staff to perform creditably well and also had not been a source of motivation to workers.

4.12 1.18 40.2

0.00 Significantly agree

16. Enugu State has been slow in motivating employees and providing effective communications which is associated with effective implementation of change.

4.44 0.85 116.4

0.00 Significantly agree

17. Enugu State government has a well laid down system of “positive” motivators with a credible and fair risk of sanction in case of misbehaviour.

1.72 0.67 57.8

0.00 Significantly disagree

18. Enugu State civil service is using the new performance management appraisal form to evaluate her numerous members of staff.

2.04 1.22 35.5 0.00 Significantly disagree

19. Individual incentives are often low-powered in Enugu State civil service, mainly because of the difficulty to finding appropriate objective performance measures to which remunerations are linked to.

4.36 0.63 155.9 0.00 Significantly agree

20. Overall average of the obstacles associated with workers performance appraisal which impedes performance management of civil service in Enugu State.

3.74 0.27 276.7 0.00 Significantly agree

121

Table 12 contained responses to the cluster B which aimed at

answering the second hypothesis. The hypothesis seeked to

determine the obstacles associated with workers performance

management appraisal which either impeded or aided Enugu State

civil service workers.

The answer to the question whether Enugu State civil service

had a performance management system that enhanced performance

at all levels through strategic planning process, the study found out

that a mean average of respondents showed 2.44 with a probability

as low as 0.00 (lower than 0.05) and a high t-statistics of about

53.3 (higher than 1.96) were scored. This showed that the

respondents significantly disagreed that Enugu State civil service

had a performance management system which seeked to enhance

performance at all levels by focusing through strategic planning

process.

A mean response of 3.52 with a probability as low as 0.00

(lower than 0.05) and a high t-statistics of about 59.1 (higher than

1.96) were given on the answer that the heads of Enugu State

service sections/units had developed plan based on key Result

Areas as assigned by supervising officers. This showed that the

respondents significantly disagreed that such plans existed.

122

On the answer to the question whether the workers of Enugu

State civil service had been able to be monitored during their

appraisal period with its documentation and communication and

provision of the feedback, the mean average of 4.04 with a

probability as low as 0.00 (lower than 0.05) and a high t-statistics

of about 74.22 (higher than 1.96) were given. This showed that the

respondents did not agree that there were such monitored appraisal

period with its documentation, communication and feedback. The

mean response of 4.32 with a probability as low as 0.00 (lower than

0.05) and a high t-statistics of about 99.7 (higher than 1.96) were

given on supervisors keeping registers for workers appraisals, this

indicated that the respondents significantly agreed that supervisors

of Enugu State civil service staff did not keep performance registers

of their workers which could have been an aid to the supervisors to

determine whether the workers were able to accomplish their

performance goals or not. This was also confirmed by documentary

evidence of Ministry of Establishment field data 2013. (Table 16).

A mean average of 4.44 with a probability as low as 0.00

(lower than 0.05) and a high t-statistics of about 100.9 showed that

the respondents agreed that Enugu State government awards

regularly to her members of staff for outstanding work done and

these had positive impact on the public interest.

123

Answer given that supervision of staff of Enugu State civil had

not helped workers to perform creditably well and also had not been

a source of motivation to the workers, had mean average

respondents of 4.44 with a probability as low as 0.00 (lower than

0.05) and a high t-statistics of about 116.4 (higher than 1.96). This

showed that the respondents significantly agreed that staff

supervision of Enugu State civil service had not helped staff to

perform creditably well. The respondents agreed that Enugu State

government had been slow in motivating employees and providing

effective communications which was associated with effective

implementation of change. A mean average of 4.12 with a

probability as low as 0.00 (lower than 0.05) and a high t-statistics

of about 40.2 (higher than 1.96) were given. This signifies that the

respondents agreed that Enugu State government had been slow in

motivating her employees and non provision of effective

communication for possible change.

Whether Enugu State government had a well laid down

system of “positive” motivators and laid down apparatus for

sanction in case of misbehaviours of workers, a mean average of

1.72 with a probability as low as 0.00 (lower than 0.05) and a high

t-statistics of about 57.8 (higher than 1.96) was adduced. This

showed that the respondents significantly agreed that there was

apparatus for “positive” motivators and laid down rules for

124

sanctions in case of workers misbehaviours, but unfortunately,

these efforts, rules, regulations, codes and warnings (reference civil

service Rules Nos. 04201, 04202, 04203, 04206) were not

observed by some of these recalcitrant, indiscipline and disloyal

officers who appeared bent on damaging the images of the service.

Whether Enugu State civil service is used the new

performance management appraisal form in evaluating her

numerous staff, an average mean of 2.04 with a probability as low

as 0.00 (lower than 0.05) and a high t-statistics of about 37.5

(higher than 1.96) were recorded. This showed that the respondents

significantly disagreed that the new performance management

appraisal form was in use in Enugu State civil service.

Whether individual incentives of Enugu State civil service

workers are often low-powered mainly because of the difficulty in

finding appropriate objective performance measures to which

remunerations are linked to, the mean average of respondents for

this was 4.36 with a probability as low as 0.00 (lower than 0.05)

and a high t-statistics of about 155.9 (higher than 1.96) were

observed. This showed that the respondents significantly agreed

that individual incentives are often low-powered in Enugu State

civil service mainly because of the difficulty to finding an

appropriate objective performance measures to which

remunerations are linked to.

125

The answer to the obstacles associated with workers

performance management appraisal, gave an average mean of 3.74

with a probability as low as 0.00 (lower than 0.05) and t-statistics of

about 267.7 (higher than 1.96) were given. This showed that the

respondents significantly agreed on a general note that the

performance management appraisal in Enugu State civil service

had been obstacles to evaluation because of its subjectivity.

126

Table 13: Respondents’ opinion on the hindrances that impede on the measures employed to engender performance management in Enugu State civil service.

Source: From Field Work 2013 (Appendix 5)

S/No

Items M

ean

Sta

ndard

D

evia

tion

t-vale

Pro

b-v

alu

e

Decision

21. Enugu State has not been able to improve the result of its civil service organizations through the auditing and reviewing mechanism which is currently in vogue for political accountability and information transparency of government.

4.44 0.94 105.3 0.00 Significantly agree

22. Workers of Enugu State civil service are paid on the basis of pay-for-performance based on objective measures of performance.

1.4 0.85 36.9

0.00 Significantly disagree

23. Workers’ recruitment in the service had been majorly been based not on merit but more on favouritism and political patronage.

3.88 1.18 73.6 0.00 Significantly agree

24. Enugu State civil service staff is weakly motivated and are unwilling to put forth effort in their performance.

3.96 1.22 72.8

0.00 Significantly agree

25. Politicians and parliament occasionally collude with corrupt administrators if they need cash to finance the electoral process and other expenditures.

4.28 1.08 88.7

0.00 Significantly agree

26. Corruption of some high ranking officers in the civil service discourages greater percentage of workers from performing highly.

3.92 1.36 64.7

0.00 Significantly agree

27. Anti-corruption measures such as Independent Corrupt Practices and Other Related Offences Commission (ICPC) and Economic and Financial Crimes Commission (EFCC) sometimes have been used by government t to harm political opponents.

3.96 1.18 74.8

0.00 Significantly agree

28. Enugu State civil service staff has developed informal rules that are more in line with real constraints and they resist change.

3.72 1.12 74.6

0.00 Significantly agree

29. Has Enugu State civil service staff been able to apply moral ethics, efficiency and effectiveness in serving the public

1.64 1.02 36.1 0.00 Significantly disagree

30. The Enugu State government’s poor budgetary allocation to the State civil service does not encourage performance management system in Enugu State.

4.00 1.29 68.9 0.00 Significantly agree

31. Overall average on the hindrances that impede on the measures employed to engender performance management in Enugu State civil service.

3.52 0.56 140.1 0.00 Significantly agree

127

Table 13 overleaf contained interview questions and responses

on the hindrances that impeded on the measures employed to

enhance performance management in Enugu State civil service.

On the answer to one of the questions in this cluster inquiring

whether Enugu State had been able to improve the results of its civil

service organizations through auditing and reviewing mechanism

and also through political accountability and information

transparency, the study found out that average mean of respondents

gave 4.44 a probability as low as 0.00 (lower than 0.05) and a high t-

statistics of about 105.3 (higher than 1.96) were given. This showed

that the respondents significantly showed that Enugu State had not

been able to improve its work force through auditing and reviewing

mechanism and through holding its political office holders

accountable through information transparency.

Whether Enugu State civil service workers are paid on the

basis of pay-for-performance based on objective measures of

performance, an average mean of respondents gave 1.4 with a

probability as low as 0.00 (lower than 0.05) and a high t-statistics of

about 36.9 (higher than 1.96) were rated. This showed that the

respondents significantly disagreed that the civil service workers

were paid on the basis of pay-for-performance based on objective

measurement of performance.

128

For the questions that workers of Enugu State civil service are

recruited majorly on favouritism and through political patronage

than through merit; the respondents gave 388 which had a

probability as low as 0.00 (lower than 0.05) and a high t-statistics of

about 73.6 (higher than 1.96). This showed that respondents

significantly agreed that, recruitment had been through favouritism

and political patronage. There was also a response of an average

mean of 3.96 with a probability as low as 0.00 (lower than 0.05) and

a high t-statistics of about 72.8 (higher than 1.96) on the inquiry

that Enugu State civil service workers were weakly motivated and

are unwilling to put forth efforts in their performance. The

respondents agreed to this position that workers are weakly

motivated and unwilling to put efforts in their performance.

An average mean of 4.28 with a probability as low as 0.00

(lower than 0.05) and a high t-statistics of about 88.7 (higher than

1.96) was given on the question that politicians and parliament

occasionally collude with corrupt administration if they needed cash

to finance their electoral process and other important expenditures

that may be of serious needed by them. They significantly agreed

that the politicians and parliament occasionally colluded with

corrupt civil service officials.

Also answering the question whether corruption of some high

ranking officers in the civil service discouraged greater percentage of

129

other workers putting in their best, an average mean of 3.92 with a

probability as low as 0.00 (lower than 0.05) and a high t-statistics of

about 64.7 (higher than 1.96) were made. This showed that the

respondents significantly agreed that corrupt practices of high

ranking officers greatly affected the greater percentage of other

workers from putting their best.

Whether anti-corruption measures such as Independent

Corrupt Practices and Other Related Offenses Commission (ICPC)

and Economic and Financial Crimes Commission (EFCC) sometimes

had been used by government to harm their political opponents.

Respondents gave an average response of 3.96 with a probability as

low as 0.00 (lower than 0.05) and a high t-statistics of about 74.8

(higher than 1.96). This showed that at times, these anti-corruption

measures by government were negatively used defeating the

intentions which they were established.

An average mean of 3.72 with a probability as low as 0.00

(lower than 0.05) and a high t-statistics of about 74.6 (higher than

1.96) answered the question that Enugu State civil service staff had

developed informal rules that are more in line with real, constraints

which made them to resist change were recorded. This showed that

the respondents significantly agreed that State civil service workers

had informal rules that contributed to the constraints in

performance management of civil service staff.

130

An average mean of 1.64 with a probability as low as 0.00

(lower than 0.05) and a high t-statistics of about 36.1 (higher than

1.96) gave their responses on whether Enugu State civil service

workers had been able to apply moral ethics, efficiency and

effectiveness in serving the public. This showed that the respondents

significantly disagreed that Enugu State civil service workers had

applied moral ethics, efficiency and effectiveness in their dealings

with the public.

Those interviewed on poor government budget responded with

an average mean of 4.0 with a probability as low as 0.00 (lower than

0.05) and a high t-statistics of about 68.9 (higher than 1.96). This

showed that respondents significantly agreed that Enugu State

government’s poor budgetary allocations to civil service do not

encourage performance of workers.

On the overall note for the hindrances that impeded the

measures that were employed by Enugu State civil service, the mean

average of respondents were 3.52 with a probability as low as 0.00

(lower than 0.05) and a high t-statistics of about 140.1 (higher than

1.96). This showed that the respondents significantly agreed on the

general note that corrupt practices and neglect by the political office

holders impeded performance management of Enugu State civil

service.

131

4.2 Findings

The following findings were made based on the responses

from the interview questions administered to our respondents and

documentary evidences collected.

i) Enugu State civil servants were not rewarded based on their

performances rather through connection with the power that

be.

ii) The Annual Performance Evaluation Report (APER) scores

that should have given clear insight into the performance of

workers were subjective hence promotions/rewards were not

subjected to performance.

iii) It was also found that Enugu State civil service staff were not

paid equal salaries as their other counterparts in other

States, hence their internal acrimonies towards their

employers.

iv) Enugu State civil service workers lacked such basic social

amenities such as medical services, canteen facilities, and

motor vehicle loans etc. which enable workers to excel in their

place of work.

v) All efforts by Enugu State Government through the

establishment of the Service Compact (SERVICOM) and

Performance Improvement Bureau (PIB) and the 4-point

132

Agenda of the government had not engendered performance of

the civil service in Enugu State.

vi) We discovered that promotion of worker was not strictly on

high performance but rather majority got their promotion

because they are connected with the power that be.

vii) Enugu State civil service had not put in motion an

appropriate performance management measuring apparatus

for which workers remunerations were linked to.

viii) The training and retraining of Enugu State civil servants were

not adequate. Those workers that had the opportunity to

attend some kind of retraining courses were not motivated

after such ventures.

ix) The disciplinary measures of Enugu State civil servants were

segregated upon as those who had ‘godfathers’ were

overlooked when they err and those who did not have are

punished even for a slight offence.

x) The findings also showed that the budgetary allocation for

Enugu state civil servants were relatively low compared with

what was given to security and other aspects of the economy.

The respondents agreed that senior officers of Enugu State

civil servants were not promoted based on their performances.

Some of the civil servants reached the apex of their position as a

result of having political connection with those in power. This really

133

occurred when such a worker was a member of the political party in

power.

Over 90% of the workers interviewed agreed that Enugu State

civil service workers received low salaries than their counterparts in

other States of the Federation. The workers affirmed that the State

was yet to implement the payment of minimum wage by the Federal

government of Nigeria.

Also, over 80% of the workers interviewed confirmed that the

civil servants lacked serious fringe benefits that would have aided

them in carrying out their duties successfully. These included lack

of sufficient working materials. Some offices lacked tables, chairs,

accommodations and office stationeries (see Table 12). Workers’

interviewed showed that they did not have medical services. This

resulted that when one was sick such a person went out of the

work premises to look for medical attention. Also, it was discovered

that the workers do not have canteen facilities and workers went

out of their working environments to get what they eat and at times

does not come back to their offices. Majority of the respondents to

the above questions were in line with the views expressed by most

oral respondents. A respondent at the Enugu State Civil Service

Commission, stated that the physical working environment

frustrates even the most willing worker. According to him, most

offices are overcrowded. Senior officers shared offices and general

134

offices looked like restaurants. Apart from the problem of office

accommodations, their working environment was very dirty. Most

cleaners were not given soap and detergents to clean the offices.

There was acute water scarcity in most offices. All these had

contributed to poor environmental conditions in most offices.

We discovered from those interviewed that there was a bitter

and acrimonious struggle amongst various leaders in the state as a

result of zonal politics by the State government. There was mutual

suspicion among zonal leaders n the State, in matters regarding

appointment of any sort. This development had led to the

bastardization and politicization of Enugu State civil service which

affected adversely, the moral of the State civil service workers.

From the pattern of response by the respondents, there was

enough evidence that politicians and influential figures interfered

with the activities of the civil service of the State.

In Enugu civil service, the spoil system had come in the full

swing. Whenever advertisements for positions in the civil service

were placed, names file out from the government house. Unqualified

but well connected candidates were usually given preferences.

Those who did not go through the politicians or did not have “god

fathers” found it difficult securing jobs in the State. The Civil

Service Commission that were responsible for all matters

135

concerning civil servants in the State were rendered powerless and

almost irrelevant.

The responses of the majority of the respondents were in

tandem with what we discovered from both oral respondents and

facts on the ground. There was high degree of favoritism and

nepotism in matters of discipline, transfer and dismissal of civil

servants in Enugu State due to zonal/sectional politics in the State.

As a result of politics in the State disciplinary measures are

administered differently on how well one is connected melodrama

“ima mmadu” some offices were filed not on the basis of merit but

on the basis of other extraneous criteria. Majority of teachers

posted to post-primary schools in 2012 were less educated.

Principals complained that majority of them do not know the

rudiments of teaching. Majority were appointed as a result of being

affiliated with party that is in power. Under the conditions of “ima

mmadu” or cognitive melodrama, distinguishing characteristics of

bureaucracy were flagrantly abused. The hierarchical structure was

turned upside down, while lines of authority run criss-cross one

another depending on the relevant source of patronage.

136

CHAPTER FIVE

DISCUSSION

5.1 Performance Management in Enugu State civil service is significantly enhanced through training, retraining of staff, promotions, and high salaries and granting of car and housing loans.

From the study, the mean average of respondents showed that

1.76 with a probability as low as 0.00 (lower than 0.05) civil service

workers do not have clear view of what their jobs entails and no

measuring apparatus by their superiors to show clearly if they had

been able to achieve the goals they were meant to achieve. Where

there were no clear goals set and no measuring instruments put in

place to determine workers achievement, the performance

management goals are defeated.

It was important to State that our study showed Enugu State

had not implemented federal government directives on the full

payment of N18,000 as a minimum wage to its workers. Our

(Appendix 8) showed that a study in Enugu State which required

workers to rank in order of importance factors that will motivate

them to work. In the table, improved welfare package took first and

salary/wages took second. In Uganda for example, Robinson (2006:

20) notes that “failure to make progress on pay reform for the vast

majority of public servants contributed to declining motivation.

137

The problem of high payment of salaries to workers in the

State civil service was also compounded by Enugu State having no

regulatory body that are in charge of mediating between the

government and workers in case of rifts because of increments. This

scenario had resulted to series of strikes and counter strikes which

had aided non-performance.

Our findings showed that Enugu State civil service workers

lacked the training needed for full implementation of the

performance management system.

The study also showed that workers of Enugu State civil

service are not motivated highly. Information from conference

papers, workers ranked in order of importance, factors that

motivated them to work. The highest ranked motivator was

improved welfare package which included: provision of loan scheme

for housing, cars, increased furniture allowances, provision of staff

bus and staff quarters, children education allowance, staff

recreation centre, free medical, self development schemes, dress

allowance and miscellaneous allowance to cover social/recreation

club membership.

In supporting our findings, the African Association for Public

Administration and Management during their 28th ‘AAPAM’ Annual

Roundtable Conference, Arusha, Tanzania between 4th to 8th

December, 2006 made a discovery. The theme for discussion was

138

“Towards an effective delivery of public services in Africa”. They

came out with fact that eighty-five (85%) percent of respondents

said that the reason why they work was to earn a living. The high

response rate attributed to the need to earn a living of 85% points to

the fact that workers in the public service attaches great importance

to ‘money’, thus policy formulators must take cognizance of this in

deciding public servant motivational/package.

Also, the rating has great implication for goal attainment,

since the over-whelming majority says they work to earn a living,

balancing the objectives of government (i.e. provision of services to

the citizenry) with reasons for working becomes paramount.

The findings supported our prepositions that in addition to

improved salary package, the workers need improved welfare

package. The paper indicated that although salary increment is a

necessary condition, it is not a sufficient condition for the

attainment of improved performance albeit improved service delivery

(see Table 12).

The study clearly showed that Enugu State had not performed

creditably in motivating her teams of workers. Hofstede (2001),

noted that individuals from different cultural backgrounds are likely

to be more sensitive to some types of motivations and to react

somewhat differently to external interventions. He added that

different social norms, the public service in low-income countries

139

e.g. Enugu as a State in particular faces a series of characteristics

and constraints that may impede the use or reduce the power of

some kinds of motivators that had proved effective in other settings.

Such constraints might for instance be:

− The lack and/or poor quality of performance information;

− Very low wages that may result in civil servants feeling to

be unfairly treated;

− Thus decreasing their loyalty to the organization, this may

justify “sabotage” behaviours.

In Malaysia, for example, a New Remuneration System had

been established which ensures that incentive packages are

regularly given to the workers. Still and, in particular, personal

achievements are recognized and rewarded. In Enugu State,

workers had often struggled with the government before they are

paid government minimum wage increases. The Enugu State had

not completed the payment of the federal government directives on

the payments of the minimum wage to civil servants in the country.

Instead of the Enugu State government negotiation with the Union

leaders, they intimidated and threatened them. (see Table 12).

140

Table 14: Field Data on evaluation of training, retraining, promotions, housing/car loans, motivation and competitive pay

S/N Civil Service Rule No. Reference No.

of Circular Subject Matter Remarks

1. Training/Retraining Public Service Rule No. 100225: Officers shall be granted in-service training for a period not exceeding two years with normal emoluments, allowances and course fees. The period of study shall count towards gratuity and pension.

ENS/HOS/TD/ 119/ XXV/II/T.I/296 of 8/02/2008

Study leave with or without pay. Officers for study leave with pay or without pay are warned not to depart for their studies without signing their bond. If they fail to sign they will be regarded as abandoning their duty posts without permission as per Public Service Rules No. 04412. Absence without leave.

2. Study leave No. 100227: Officers are granted study leave without pay where the proposed courses of study are not contained in the approved training proposals for their Ministries/ Extra-Ministerial office.

ENS/HOS/TD/682/ T.I/157 of 20/02/08 ENS/HOS/ED/SR/ 64/I/T/53 of 17/10/08 ENS/HOS/TD/102/ T.1/343 of 16/7/09 ENS/HOS/TD/102/ T.1/430 of 24/97/09 ENS/HOS/X.III/1/ 349 of 10/12/2009 MST/AD/081/270 of 18th May, 2005

Train of Chief Typists and other cadres of Typists preparatory for conversion to data processing Officers/ Assistant cadres. Computer training in the civil service. Commencement of year 2009 Advanced/Middle Financial and Administrative Management courses. Postponement of date of Commencement of year 2009 Advanced/Middle Financial and Administrative Management Courses. Circulars could not reach distant Local Government Areas who are expected to participate. Assessing the ICT needs of Enugu State Government. Notice of commencement of Computer Literacy Training programme. Ministry of Science and Technology to organize a programme of Computer literacy Training (CLT) for the benefit of Enugu State Civil/Public servants.

ENS/HOS/TD/119/ XXV/111 of 06/03/2001

Suspension of study leaves with pay. Ministries and Non-Ministerial Departments are accordingly

141

advised to stop entertaining any application for study leave with pay.

No. 040201 Increment is a predetermined amount added to the annual emolument of an officer every calendar year.

ENS/HOS/X.21/1/ 149 of 21/03/2001 ENS/HOS/X.21/11/ 151 of 15th Oct., 2007 ENS/HOS/X.2/II/206 of 4/02/2009 ENS/CSC/AD/137/VII/88 of 12th May, 2000. ENS/HOS/X.21/II/214 ENS/HOS/X.21/I/I/ 103 of 23/6/2000 ENS/HOS/X.21/II/201 of 9th Sept., 2008

Lifting of Embargo on promotions. Promotion interview of the Re-engaged workers. All Ministries/Departments are invited to commence and complete actions on the promotion of their re-engaged workers to bring them at par with their colleagues. Conduct of 2007 promotion Examinations. Conditions for promotion of officers in some Senior Management position in the State civil service. Apart from attaining 3 year maturity period, are required to have attended certain courses as spelt out in the Scheme of service. Appointment of desk officers National Housing Fund Scheme Approval of the release by government the sum of N22,608,015.87, for the unremitted deductions made from the workers in Enugu State being their contributions towards the National Housing Fund Scheme. Payment of minimum wage of N6,000.00 Revision of the minimum basic salary. His Excellency the Governor of Enugu State has, therefore, raised the minimum gross salary in Enugu State to N8,675.00. Evidence at Ministry of Establishment showed that the minimum wage of civil servants in Enugu Sate had not been resolved.

Compulsory occupation of government quarters No. 14102

ENS/SSG/M.328/172 of 9th July 2007

Verification of occupants of Enugu State government quarters/public buildings. This was done to ensure the quarters are not monetized/leased to non-occupants of its quarters in Enugu State.

142

ENS/HOS/X.II/VI/43 of 31/08/2009 ENS/HOS/X.221/II/141 of 6/02/08 ENS/HOS/AD/CIR/064/17 of 4/2/09 African Association for Public Administration and Management (AAPAM) 4th-8th Dec. 2006. Motivating the public service for improved service delivery.

Monetization of Fringe Benefits in the public service of Enugu State. The sale of Staff Quarters to public servants. Re-sale of Staff Quarters to deserving public servants under the monetization programme of Enugu State Government. Urgent need to rehabilitate Toilet facilities in Ministries and Departments. Observation showed that most toilets and urinary facilities in Ministries and Departments are in deplorable state. There is no water supply and workers have no other alternative than to use bush method. All Ministries and Departments were mandated to repair and maintain their toilet facilities and broken pipes to ensure healthy environment. What constitute the workers motivating factors for improved service delivery in Enugu State in order of priority. The findings showed: a) Earn a living 85%; b) Contribute to societal development 50%; c) Achieve self actualization (fulfill an aspiration/ambition ) 25%; d) Meet family responsibility/ expectations 20%. Rank in order of importance factors that will motivate workers to work. a) Improved welfare package, 43.4 b) Salary/wages, 28.7 c)Good and stimulating working

environment, 18 d) Enhanced Training and Re-training

18 e) Responsibility and challenge 10.0 f) Efficient promotion process 9.5 g) Good Interpersonal Relationships

9.5 h) Timely payment of salary 8.6 i) Availability of working materials 7.4 j) Enhanced pension scheme 7.4 k) Job security 7.4

143

Public Service Rule No. 030201

l) Organizational goodwill 5.6 m) Recognition of sills 5.6 n) Involvement in Decision making 5.6 o) Superior Leadership style 5.6 p) Realistic succession plan 5.6 q) Annual leave 5.6 List of factors that can hamper Improved Service Delivery

General inefficiency consists of a series of omissions or incompetence the cumulative effect of which shows that the officer is not capable of discharging efficiently the duties of the office he holds.

a) Poor remuneration b) Inadequate motivation c) Lack of training and re-training d) Unconducive working

environment e) Corruption and mismanagement f) Inadequate working tools g) Lack of political will h) Red-tapes l) Policy consistency j) Poor leadership style k) Slow budget implementation l) Non-commitment m) Bad time management n) Mediocrity o) Poor promotion system p) Poor attitude and wrong values.

Source: Office of the Head of Service,

Establishments, Pensions and Training Bureau, Enugu, March, 2010.

144

Table 15: SUMMARY OF RESULTS OF PILOT PERFORMANCE EVALUATION TESTING ON FOUR SELECTED MINISTRIES, DEPARTMENTS/AGENCIES IN ENUGU STATE

Trial Tests Result Summary (in %)

Assessed Attributes Enugu State Ministries/Departments & Agencies

Education ESWAMA SSG HRDPR Set standards 49 59 46 83 Quality Service Delivery 9.3 42 16.7 45 HR Components 53 65 63.3 56 Fiscal Management 0 15 55 33

Impact & Accountability 35 43 40 85 Sustainability 55 42 80 70

Source: State and Local Government Programme, Consultant’s Report Number X, Enugu State, May 2007.

Table 15 shows the summary of the scores of the Ministries,

Departments and Agencies (MDAs) selected for the trial audit

process.

(1) The results show that the Ministry of Human Resource

Development and Poverty Reduction recorded the highest

performance under the “Set Standard criterion” with a score of

83% (Extremely Good) while it scored 33% (Poor) under the

“Fiscal Management criterion”.

(2) The Ministry of Education recorded 53% under the HR

components, with a 0% under the Fiscal Management

criterion. The poor score in the fiscal management category is

not unconnected with poor fiscal management policy

framework in the Ministry.

145

(3) The Office of the SSG recorded 16.7% under the Qualitative

Service Delivery category, while it recorded 55% and 40%

respectively under the Fiscal Management and Impact and

Accountability categories.

(4) ESWAMA recorded 59% in the set standards criterion and

15% in the Fiscal Management criterion. The result of 42%

recorded by ESWAMA in the Quality Service Delivery criterion

is due largely to the support it got from collaborations with

the State and Local Government Programme.

5.2 The Effect of Employee appraisal in performance

management of Enugu State civil service.

It was discovered that Enugu State workers appraisals

were based on Annual Performance Evaluation Report (APER). This

indicated that workers were appraised at the end of the year. There

was no apparatus that gave clearly to workers all about and what

should be used to measure it. According to Ministry of Civil Service

and Administrative Reforms, Republic of Mauritius, a typical

individual appraisal should be an ongoing interactive process

between appraisee and appraiser, comprising:

− Preparing work plan and setting performance expectations

derived from section/unit annual plan.

− It also involves entering into performance agreement after

discussion.

146

The performance of job holders must be assessed by taking

into account of both ‘what’ they have achieved, and ‘how’ they have

achieved it. Managers should make a judgement over whether

objectives have been met or exceeded. The implication of not taking

the rigours of evaluating, coaching, counseling workers on their

performance had brought about low performance of workers.

According to Cole (2002), a situation where openness and

participation are encouraged, any system will be discussed first with

those involved, with the result that appraisals are more likely to be

joint problem-solving affairs than a ‘calling to account’ by a

superior. The traditional performance appraisals of superiors to

subordinates are still used and this does not encourage feedback

which is highly needed for the New Management System.

It is important to note the focus of the appraisal on the job or

the person. The Enugu State appraisal focuses on the jobholder.

The problem then emanates that the appraisal form now will focus

on the worker rather than the job. This makes it difficult to

determine the workers success in achieving results. It is important

to stress that supervisors too are not abreast with the new

performance management appraisal hence they could not use the

appraisal effectively to determine if workers are meeting up with the

performance goals. It is important to state that if individual/team

performance goals are not determined, it would be very difficult to

147

achieve organizational goals which performance management

system is poised to achieve (see Table 16).

Table 16: Field Data on obstacles associated with workers’ performance management appraisal

S/N Civil Service Rule No.

Reference Nos. of Circulars

Subject Matter

Annual Performance Report and Certificate of Service. No. 050102. It is essential for the general efficiency of the service that annual report on officers shall be detailed and candid.

ENS/HOS/AD/ 14/7 ENS/HOS/SWD/I/162 of 11th March 2008 ENS/CSC/S.101/V/108 Fed. Gen. 79 Enugu State Ministry of Establishment Training Guide 2013.

The Enugu State Federal character commission embarked on a nationwide State Manpower survey. Assessment and manpower development. The Enugu State Government has concluded arrangement to access the strength of personnel, for sustainable manpower development, especially within the lower cadre of civil service. Circular for 2005 public Service Examination Interested serving officers who are in possession, of the basic qualifications required for Admission and wish to participate in the examination will be required. This is the Confidential Annual Performance evaluation report. The period covered January to December of evaluating year. One States his or her job description. Such information include: State below in order of importance the main duties performed during period of report. Workers are assessed by ratings A – E without any tangible figure. 2. Superior officers have no key point indicators to assess their workers to know whether they covered their job description. (1) Workers to be assessed bi-annually starting from 2015 fiscal year. (2) Superior officers to assess their junior workers on key point’s indicators well stated. (3) Workers to be critically assessed by their bosses to ascertain whether they have achieved the key point indicators. Their promotions will be based on the result of their assessment.

Source: Office of the Head of Service, Establishments, Pensions and Enugu.

148

5.3 The hindrances that impede on the measures employed by

Enugu State government to engender performance management of civil service.

We observed that majority of Enugu State civil servants are

rewarded not based on their hard work but as patronage for their

political affiliations and other similar indices of brotherhood. The

implication of this gesture is that it creates suspicion among the

workers. The work environment becomes a fertile ground for non-

chalant attitudes by workers. It gives opportunity for workers to be

aloof in their own organization and this cannot create room for high

performance.

We also observed that workers who are hard working and

obedient to the authority tend to be discouraged by the recalcitrant

ones who are backed by those in high positions. Also we discovered

that corruption of workers in the civil service brought about low

productivity. Also our research discovered that majority of the

recruited workers are not through merit but on political patronage.

This phenomenon tends to bring about low performance.

Also the dichotomy experienced in Enugu State civil service does

not encourage high performance. According to Mr. Ugwu Ambrose,

the zonal politics employed by government of Enugu State had affected

adversely the morale of civil servants in the State. There is acrimonious

struggle and mutual suspicion among various leaders in the State, in

149

matters regarding appointments, recruitment and promotion in the

State civil service.

Our respondents revealed that majority of the workers argued

that there is low government budgetary allocation to civil servants.

Their responses are in line with the views of oral respondents.

According to most workers, they do more work and receive less pay.

They complained that they are grossly under paid. This inadequate

payment and some other essential incentives they argued, contributed

in facilitating corruption and poor work behaviour.

Our oral proponents indicated in support of our interview

questions that there existed corruption in Enugu State civil service. In

2007/2008, in the Education Ministry, many prospective principals

paid up to N200,000.00 (two hundred thousand Naira) only and

N250,000.00 (two hundred and fifty Naira) in order to be made

principals. In 2009, there was merging and demerging of secondary

schools in Enugu State Post-Primary Schools. It was a field day for the

Education high ranking officers who capitalized on that demerging to

receive money from prospective principals. Later in 2010/2011, the

demerging of schools was stopped.

During the time of demerging the schools, there were rampant

illegal levies in schools by principals to cover what they spent. Also, it

brought about increase in examination malpractices as the principals

colluded with supervisors to achieve their evil desires. It is very

150

unfortunate that many senior officers from the headquarters visit some

schools on routine supervision. Those schools or institutions spend

their last kobo in order to win the hearts of their so-called ‘august

visitors’. The visit to schools or institutions where these officers are

manning becomes rituals and in a continuous manner they forgot their

focus of putting rights what is wrong in the institutions under them.

It is also noted through our oral findings that majority of the

contracts being executed are done shabbily as far as the officers in

charge have claimed their 10% kick back. Sometimes some hooks are

printed which may or may not be relevant to an institution but, such

institution is forced to pay for such materials without questioning.

Respondents during African Association for Public

Administration and Management Annual Conference (2006) stated the

following as some factors that can limit the ability of the public

servants to achieve improved service delivery.

(a) Poor remuneration.

(b) Inadequate motivation

(c) Lack of training and retraining.

(d) Unconducive working environment.

(e) Corruption and mismanagement

(f) Inadequate working tools.

(g) Lack of political will.

(h) Red-tapism.

151

(i) Policy inconsistency.

(j) Poor leadership state.

(k) Slow budget implementation.

(l) Non-commitment

(m) Bad time management

(n) Non-existence of state of the art technology.

(o) Mediocrity.

(p) Poor promotion system,

(q) Poor attitude and wrong values (see Table 12).

Our study also showed that civil service had been politicized to

the extent that most top officials openly supported the government of

the day. This had civil servant at times to deviate from civil service

rules in order to please their ‘political’ masters. Eme and Ugwu (2011)

noted that … ‘the principle of recruitment and other spoils system

techniques have sacrificed efficiency and effectiveness in the Nigerian

public service. Subsequently observation by Mohammed Salisu posited

that ‘considerate political interference in the process of personnel

administration had led to improper delegation of power, ineffective

supervision and corruption. Thus, result in official apathy that had so

far culminated into unauthorized and unreasonable absenteeism,

lateness and idleness and, notably, poor workmanship’ (Salisu, 2001:

27).

152

The Filipino Civil Service Commission (CSC) runs an annual

Honour Awards Programme (HAP) that recognizes government officials

and employees who have displayed outstanding work performance. The

conferment of honour awards aims to motivate or inspire government

employees to improve the quality of their performance and instill

deeper involvement in public service.

The longer that poor performance is allowed to hanger, the

greater the problem for the individuals and organization until it is

finally tackled.

The politicians in Enugu State especially during election periods

increase the number of civil servants for patronage reasons. The

workers recruited were weakly motivated and unwilling to put forth

effort. The study showed that anti-corruption measures put in place to

regulate both workers excesses sometimes are used by government to

harm their political opponents. The anti-corruptions bodies are at

times thrown into the same environment/problems as other public

bodies. The workers had the notion that they are unfairly treated and

then corruption legitimized.

Rosemary O.A. et al. (2014) opined that to ensure that manpower

is optimally deployed; there should be effective monitoring system of

the productivity of individual workers to ensure high productivity of

the whole workforce. The initial recruitment and placement of works

should be on the bases of skills and competence.

153

The American Society for Public Administration Code of ethics

highly recommended in their code of conduct that workers should

establish procedures that promote ethical behaviour and hold

individuals and organizations accountable for their conduct.

The study showed that the State had not given robust budgetary

allocations for the civil service and this had hindered performance in

the civil service. The American Code of conduct had it that workers

should prevent all forms of mismanagement of public funds by

establishing and maintaining strong fiscal and management controls,

and by supporting audits and investigative activities. In Singapore, civil

service salaries are commensurate with those offered by the private

sector. Significant social prestige attaches to employment in the

higher ranks of the civil service and senior staff is richly rewarded for

its efforts, with civil service salaries being amongst the highest in the

world. This was made possible through robust budgetary allocation by

government.

154

Table 17: Field data on the hindrances that impede on the measures employed by Enugu State government to engender performance management of civil service.

Civil Service Rule Circular Ref. No. Subject Matter Section 2 – Misconduct No. 04201 (i) Willful act or omission or general misconduct to the scandal of the public or to the prejudice of discipline and proper administration of the Government e.g. corruption, dishonesty, drunkenness, false claims against Government etc.

ENS/HOS/X.21/ I/122 of 10th August, 2000 ENS/HOS/C.21 1/218 of divulg- ing of official secrets.

Dealing with misconduct, indiscipline and intransigency in the service. The Head of Service, Enugu State observed that some civil servants continued to engage in various acts of misconduct and exhibited gross incompetence in the exercise of their official responsibilities. He warned them that no civil servant or public servant had any right to his/her salary or wage without giving adequate service in return. Various Heads of Administration were to be held responsible for any lapse(s), omission or non-rendition of the required returns of defaulters. Divulging of official secrets. The Head of Service Engr. R.N. Okenwa, Mni observed with that public servants, including Senior Officers, had formed the habit of divulging secret /official/ documents in clear breach of the official secrets act and indeed public service rules. This development embarrassment to the State Government. Severe disciplinary action, which may include dismissal from the service, would be visited on any public servant who breaches any of the above listed sections.

155

ENS/HOS/X.21/

1/240 of July 2nd 2002 ENS/HOS/X.21/ Vol.II/142 of 17 Sept. 2007 Misconduct in Civil Service. ENS/HOS/X.21/ II/210 of 4th March 2009 Manipulated circular on Health Technicians

Non-compliance with posting orders by Ministries and extra-ministerial Departments. The Head of Service Engr. R. N. Okenwa Mni observed that since the introduction of the Pooling System in 1996, the deployment of Pool Officers by his office has been constrained sometimes unnecessary and frivolous protests from Ministries/Non-Ministerial Department. The Enugu State Head of Service A. C. Edoga sent a circular to draw the attention of all public servants in Enugu State to the provisions of Chapter 4 Section 3 and 4 of the Public Service Rules with respect to Section 4 Paragraph 04401 (i) identifies

� “Willful act of omission or general misconduct to the scandal of the public.

� Membership of secret societies

� Falsification of records � Fowl language � Insubordination.

Manipulation of content of Establishment circular No. ENS/SSG/ED/SR/57/II/354 of 10/09/92. The Head of service A. C. Edoga called on al the Heads of Ministries, Departments and Agencies, the Local Government Service Commission to disregard mutilated section and suspend any further action on its implementation. The manipulated section was fraudulently added to the original circular and many serving staff had fallen victim to the cheap and questionable

156

ENS/HOS/X.21/ 343 of 5th October 2009 Lateness to work. UBSS/09/Vol.II/ 96 of 3/7/2012

weekend programme at Oji River and Nsukka. Equally Enugu State Government had been defrauded of huge sums of money on the pretext of this programme and enhancement of staff. The Head of Service, had observed with dismay that most workers of the Civil/Public Service formed the habit of coming to work very late. In most days of the week, workers are found strolling into their offices as late as 10.00 am. In spite of rules and regulations put in place. Defraudment of government money in my school for the attention of the Chief Internal Auditor. A Bursar of a school in Nsukka Zone capitalized on the principal’s major surgical operation and defrauded the Senior Secondary Class students the sum of N53,000 (Fifty three thousand Naira). The bursar also forged the principal’s signature and withdrew the sum of N73,000 from the School Account. The total came to N126,000 being the amount the bursar defrauded.

Source: Office of the Head of Service, Establishments, Pensions and Training Bureau, Enugu, March, 2010.

157

Table 18: Field data on the measures that can be employed to engender performance management in Enugu Sate civil service. Civil service rule on measures for performance

Circular Reference numbers

Subject Matters

Public service Rules (2010) No. 150102 the recipient of an award must have been considered as best on the basis on the basis of out-standing performance of duties and exemplary conduct during the year

ENS/HOS/X.21/1/203 of 3rd October 2008

Computer training in the civil service.

Public Service Rules No. ENS/HOS/ED/SR/64/1/T/53 of 17th October, 2008

Computer Training in the civil service

150103 gives each ministry or extra-ministerial office authority to

ENS/HOS/X.21/vol.II/206 of 4th February 2009

Conduct of 2007 promotion Examinations. This helps in staff promotion and development

award to deserving officers annually

ENS/HOS/X.21/Vol.II/209 of 24th February 2009

Approval of elongation of the salary table of graduate primary school teachers from salary grade level 14 to 16.

ENS/HOS/TO/102/T.I/343 of July 16th 2009

Commencement of year 2009 Advanced/middle financial and administrative management courses.

No. 150104 states that the awards may be in the form of medals, gifts of cash or king

ENS/HOS/X.21/11/337 of 28th July 2009

Forwarding of Nominal roll of officers to code of conduct Bureau for the purpose of Asset Declaration. This mitigates against workers practices of unlawful acquisition of properties.

No. 150106 states that any officer who in the course of his official duties, carries out a

ENS/HOS/X.III.226 of 11th December, 2009

His Excellency The Governor Of Enugu State, Barr. Sullivan I.

158

unique act or, in perilous circumstances, secures the safety of human life or property may also be considered for an award as the occasion warrants.

Chime Granted Approval For The Information Communication Technology Enugu to assess the ICT needs of all the Ministries/Departments and Agencies in Enugu State.

ENS/CSC/AD/114A

/1/161 of 24th April, 2008

Conversion to administrative officer’s cadre. Examination is intended to test officer’s knowledge of Public Service Rules, Civil Service Reforms, Financial Instructions and other aspects of civil service Administration.

Public Service Rules No. 150107 states that an officer who has served continuously for a minimum of 15, 25, 35 years with good service records shall be eligible for a certificate of merit and award in kind commensurate with his length of services.

ENS/CSC/AD/137/VII/192

Financial executive date of promotion of re-engaged workers. This boosted the morale of workers who were unjustifiably retrenched from the service

ENS/CSC/S.276/1/S.38/17 of 27th October 2009

2008 promotion examinations for officers on grade levels of and above.

Performance Audit and Public information (PIB) by Femi Badejo May, 2007 funded by state and Local Government Programme (SLGP) Enugu.

The introduction of the performance audit trial template is meant to systematize the operations of performance Improvement Bureau in the area of performance audit management in line with known best practices. The

159

consultancy for the performance audit template design and trial Departments and Agencies in Enugu State is funded by state and Local Government Programme (SLGP) and is aimed primarily at adding significant efficiency and modernization to the operations of Performance Improvement Bureau (PIB) in the discharge of performance audit and related task amongst MDAs in Enugu State, Nigeria.

A guide to Enugu State Service and Performance Improvement Bureau Service Standards and Operations July 2012 Printed by Government PRINTER, ENUGU

At the Federal Public Service, the roadmap for SERVICOM was published in 2004. its logo has an inscription that reads “you have the right to be served right”. His Excellency-Sullivan I. Chime – A NEW PLEDGE TO DO MORE. Inaugural Address on the Occasion of his swearing in for 2nd term as Governor, Enugu State – 29th May 2011.

Source: Office of the Governor, Enugu SERVICOM AND PIB. July 2012. The above table (18) on the measures that was put in place to

engender performance management in Enugu State Civil service

made some revelations. The Governor Nnamani’s policy statement

160

on the civil service in his inauguration address of 29th May, 1999

showed that he revoked the non-indigene policy of the previous

administrations. He denounced the policy as retrogressive and

capable of isolating the State from the other States of the

Federation.

The new administration of Governor Nnamani also set up

Paul-Egbogu Reform Committee with the following terms of

reference:-

(i) To study the Federal White Paper on Ayida Panel Report Well as the State Committee’s (Udeagbala Committee) Recommendations based on the Ayida Report in Enugu State and make recommendations;

(ii) To identify and review the present structure of the State Public Service; (iii) To identify and review all Government Ministries, Commissions, Agencies, Parastatals and other Government Bodies (excluding Schools and other Educational Institutions), showing in each case:

- the structure - the activities and functions; and - the staff strength (according to ranking of

or designation);

(iv) To advise Government on the expected output (in Both quality and quantity terms) and productivity level of the Public Service; (v) To determine the current actual productivity level of the Service; (vi) To conduct a skills and capability audit of the Public Service with a view to identifying the Relevant training needs; (vii) The review the current bureaucratic processes in the Public Service and recommend to Government ways to Expedite the decision-making process, without

161

Compromising quality of decisions reached; (viii) To recommend to Government a New Public Service Structure that would be run effectively and efficiently, employing the optimal number

of staff; (ix) To recommend to Government ways and parameter for evaluating Civil Service productivity both at the general and individual levels; (x) To recommend to Government appropriate Compensation and incentive necessary to Remunerate and motivate the Public Service employees. (xi) To conduct any other relevant inquiries with performance of the Public Service and recommend solution for combating the anti- social practice.

The Governor Nnamani’s administration had repeatedly

expressed worries over the high monthly wage bill occasioned by

alleged over-bloated workforce, saying that a situation where

90 per cent of the State income is spent on salaries could not be

acceptable. On the issue of the Federal Government minimum

wage increase across the nation, the Enugu State workers

were still grappling with the issue of disengagement of their

staff; then another crisis was brewing over the new minimum

wage. Negotiation between the State Government and labour

over the minimum wage started in June 2000. Government side

was led by the Deputy Governor Chief Okechukwu Itanyi. It was

deadlocked. Revised minimum wage of N18,000 during Governor

162

Chime’s regime was also deadlocked.

Also Governor Nnamani’s administration inaugurated a

Ten-man Committee on May 4, 1999 to formulate a New Water

Vision (NWV) that would help us tackles the water problem in

Enugu State. The Committee had since submitted its report

and Government were making all efforts in implementing

all its recommendations. The governor also recommended new

Strategies for water supply to Enugu metropolis which he said

That government would ensure their actualization.

The highlights of the strategies are:

(1) Rehabilitation the electro-mechanical systems at Ajali And communication systems to make the scheme Deliver at least 66,000m3/day. (2) Rehabilitating all the twelve boreholes as Crash Programme Boreholes and increasing the number of boreholes to twenty and piping it to the twin Tank directly. This will ensure an additional 48,000m3/day and acting as a standby to Ajalli System during maintenance; (3) Rehabilitating completely the Iva Headwork’s to Bring in an additional 20,000m3/day. (4) Providing two new mini water schemes at Emene And Abakpa-Nike for the tail-end dwellers of Emene, Abakpa-Nike and Trans-Ekulu 14,000m3/ Day is expected from these two schemes; (5) Reconstruction of the Akwuke water scheme to Increase the yield to up to 7,00m3/day.(etc.) He assured the people of Enugu State that they are committed to

the achievement of the set targets. The Governor also stated the

163

government readiness to sustain the successes already achieved under

UNICEH-assisted programmes. Such UNICEF supported activities

include: health programmes, nutrition, basic education, advocacy and

communication, water and environmental sanitation, planning,

monitoring and evaluation.

The Governor Nnamani’s administration made all frantic efforts

to use available resources within their limits to make a difference in

the lives of the people of Enugu State. His predecessor Governor

Chime took over the mantle of leadership of Enugu in May 2011. He

stated in his inaugural address of 29th May, 2011 that his

administration was determined to establish in concrete terms the

linkage between the service policies that addressed the period between

29th May 2007 administration and the same policies institutionalizing

best practices in service delivery and good governance from May, 2011.

Governor Chime stated that service to the citizens should not be “a

favour” buy “their right”. This unequivocally makes it clear that the

citizens have inalienable entitlement to services provided by Enugu

State Government. The services are primarily theirs. Government

employees (public servants) are caretakers of the services they provide.

As caretakers, they must by the tenets of Enugu State service delivery

policy give out the services to the citizens, timely and in accordance

with Government approved standards and quality without condition.

164

Furthermore, the governor stressed that to meet up with these

key indicators of model services of Enugu State Government, the

government stated that the following services had been put in place.

(a) Ensuring that all public servants receive their annual leave allowance on commencement of leave.

(b) Payment of salary of public servants on or before 25th of

every month.

(c) Ensuring that promotions are up to date.

(d) Massive development in infrastructure.

(e) Free education to JSS III. (f) Sustenance of none interference in Local Government income. To ensure compliance of performance of workers to ensure

service delivery, Service Charter were given to different Ministries,

Departments and Agencies in the State. It was also expected that the

SERVICOM and Performance Improvement Bureau Unit officers in

Ministries, Departments and Agencies establish direct link with Hon.

Commissioners, Permanent Secretaries and other Chief Executives,

will have easier approach to step up reforms in their various

Ministries, Departments and Agencies. The SERVICOM and

Performance Improvement Bureau will also extend Enugu State service

delivery policy and vision to more Government establishments

including tertiary, secondary and primary institutions through the

appropriate channels. The intended end product of these actions is to

165

have an integrated service delivery in all the facets of governance in

Enugu State.

It is important to state that Enugu State government trial test of

some selected Ministries, Departments and Agencies was

commissioned by former Governor Nnamani’s administration on the

22nd of June 2005. The main aim was to regulate service delivery

performance in the state. Deriving also from the Enugu State of

Nigeria Public Service Circulars 1999 – 2009 raised issues of how to

better the civil service in the State. The Enugu State in 2007 gave

performance evaluation against service charters of related

Ministries/Departments/Agencies as an important tool for validating

the claims of related agencies in terms of service delivery on

performance targets and goals.

The following are steps in the measurement and management of

performance as carried out by Enugu State in May 2007 in four

selected Ministries/Departments and Agencies.

The following were the steps in the measurement and

management of performance as carried out by Enugu State on the four

selected Ministries/Departments and Agencies.

(a) Understand the organization and clarify the strategic direction. (b) Develop performance measures

(c) Planning and establishment of targets

(d) Day to day management of the organization

166

(e) Evaluation of manager’s performance.

(f) Management system for organizational performance

(g) Responsibilities, Incentives Training Job descriptions

The design of the parameters for measuring the degree of

relevance of service delivery in overall good governance and optimal

service delivery to its citizenry is to meet individual needs, manage

performance, manage resources, manage feedback and manage

accountability and transparency.

167

CHAPTER SIX

6.0 SUMMARY, RECOMMENDATIONS AND CONCLUSION

6.1 Summary

This study was undertaken to examine the performance

management in the civil service using Enugu State civil service as

the case study. Its primary goal was the examination of the

performance management in Enugu State civil service from 1999 –

2011. But in more specific terms, the study aimed at looking

critically at the steps towards the enhancement of Enugu State civil

service performance management, through training and retraining

of staff, promotions, adequate housing and car loans. It helped us

to identify the measures that were employed to carry out a

performance appraisal measures that could show differentiation in

workers performance ratings, opportunities and compensation from

underperformers. This work also helped us to unravel the measures

that were put in place by Enugu State government to engender

performance management of the civil service and finally

recommended remedies for performance management. The Goal-

setting Theory by Locke and Latham (1990) for performance and

reward management formed the framework of analysis. Arising from

the literature review, the following hypotheses stated in alternative

form guided this study:

168

(a) Performance management in Enugu State civil service was

significantly enhanced through training of staff, promotions,

high salaries, and housing and car loans.

(b) Staff appraisal contributed positively towards workers

performance in Enugu State civil service.

(c) There existed significant measures that could be employed

to engender performance management in Enugu State

civil service.

Deriving from the literature review and the findings made, we

were able to reach a conclusion that:

(a) That the enhancement of performance management in Enugu State

Civil service through training of staff, promotions, adequate

housing and car loans were low and could not boost performance.

(b) The Annual Performance Evaluation Report as practiced in Enugu

State civil service impeded performance management system.

The evaluation measures could not measure the key performance

indicators of the organization to know the best and worst

performers, then nurture the former and rehabilitate and/or

discard the latter.

(c) Certain measures to engender performance in Enugu State Civil

Service were put in a place such as the Guide to Enugu State

SERVICOM and Performance Improvement Bureau for service

169

Standards and operations. Also the Pilot Performance Improvement

Bureau for service standards and operations. Also the Pilot

Performance Evaluation Testing of Ministries, Departments/

Agencies in Enugu were used to determine the level of workers

performance. All these efforts were employed towards the

improvement of workers’ performance, but could not improve

the performance management in Enugu State civil service.

6.2 Recommendations

The process of data presentation and analysis produced some

findings. The result showed that there was low performance

management in Enugu State civil service.

Therefore, this work recommended:

(1) That the Enugu State government should as a matter of

urgency implement in full the Federal Government directives on

the minimum wage increase. This was important as some other

States in the country had implemented theirs and Enugu State

would not be different. It was also crucial as inflation in

Nigerian society was rising everyday to an unimaginable

proportion and these workers had to go for purchases in the

same market with those workers who are well paid and cared

for.

170

(2) Training and re-training of workers was a very crucial issue as

the adage goes on to say that ‘one cannot give what he has not’.

It is very pertinent to state that when competent staff was

brought into an organization, their competence, ingenuity,

skills and professionalism could have great positive impact if

well harnessed. All these contributed to the improvement of

organizational performance.

(3) It was also recommended that Enugu State civil service should

device appraisal apparatus that would be able to measure

workers performance in line with key performance indicators of

their organizations/departments. These would bring to focus

workers that could be nurtured and those to be rehabilitated

and/or discarded.

(4) We recommended that the performance management attempts

by the State Government like the establishment of the

Performance Improvement Bureau Service Standards and

Operations coupled with the 4-point agenda of the Enugu state

government should be strictly adhered to for full

implementation.

(5) We also recommended that Enugu State government should as

a priority increase the State budgetary allocation for civil

service as they stood as the hub where the wheel of the society

rotates. The civil service was a veritable tool for infrastructural

171

development, setting and coordinating State policies and social

service delivery.

(6) It was also highly recommended that political office holders

should not interfere in the affairs of the civil servants as this

would breed disobedience to constituted authorities and

essentially result to low performance as a result of non-

adherence to due processes.

6.3 Conclusion

Finally, the importance of performance management was

crucial in any human endeavour. The success or failure, growth or

decline of any organization undoubtedly depended, to an

appreciable extent on the performance management of such

enterprise. The training and re-training of the civil servants should

be of paramount importance as it would contribute immensely

towards the attainment of goals and mandates for greater

performance. It is of great importance that workers should be highly

motivated through payment of a living wage and other incentives

that would enable them love to stay in organization. It is pertinent

to state that organizations should have clear visibility, regular

individual analysis of organization-wide employee appraisals to

identify corporate competencies and skill gaps. With this valuable

data in hand, organizations could identify training and development

plans. This research was, therefore, convinced that if a holistic

172

application of the recommendations are carried out, it will bring

about the transformation of performance management of the civil

service in Enugu State.

173

Bibliography

Books

Adamolekun, L. (1986) Transforming the Civil Service in Larry Diamond, A. Kirk Green and Oyeleye Oyediran (eds.) Transition Without End,

Ibadan: Vantage Publishers. Adedeji, B. (2001). Civil Service in Nigeria: Issues and Principles. Ibadan:

Godon Press Ltd.

Ademolekun, L. (2005). Public Administration: A Nigerian and Comparative perspective. New York Longman Inc.

Al-Gore, (1993). From Red Tape to Results: Creating a Government that Works Better and costs less (Washington, D.C. Government Printing Office, 1993), 5.

Al-Gore,(1995). Common Sense Government Works Better and costs less. (Washington, D.C. Government Printing Office, 1995), 33.

Ali, S. M. (2003). Leading Public Service Innovation: The Case of the Nigerian Civil Service and Federal Civil Service Commission. Abuja: Federal Civil Service Commission.

Ana Zodo, R. O. (2009). Civil Service in Nigeria, An Analysis of Its Bureacration effectiveness, Onitsha. Abbot Books, Ltd.

Armstrong, M. (2008). Performance Management: Key Strategies and Practical Guidelines. Philadelphia: Kogan Page Limited.

Ayoade, A. A. (1988). States without Citizens: An emerging problem in D. Rothchild and N. Chazain (1986) (eds), The precarious Balance: State and Society in Africa, West View Press, Boulder.

Bade, C. C. (2009). Principles of Public Administration in Nigeria. Ibadan: University Press.

Boselie, P. (2010). Strategic Resource Management. London: McGraw-Hill Education.

Chikani, J. M. (2004). Elements of Secondary Administration. Enugu: Fred-Ogah Publishers.

Chike-Okoli, A. and Sarki, P. S. (2005). Influence of Physical Classroom. Environment on Academic Performance in Public and Private Primary Schools. In Akpa, G. O., s. U. and Fagbamiye, E. O. (Ed.).

174

Deregulating the Provision and Management of Education in Nigeria. Jos: M. P. Ginac Concept Ltd.

Chike-Okoli, A. N. (2004). Educational administration and Planning: Theory and Practice. Kaduna: Shamac Publishers.

Chukwunweike, M. (2006). Catholic Education in Nigeria within the 21st Century. Enugu: Ndubest Productions.

Clark, J. and Clark, S. (1992). Prioritize, organize the art of giving things done. Shawnee Mission K. S. National Press Publication.

Cole, G. A. (2002). Personnel and Human Resource Management, London; Continuum.

Faleti, S. A. (2006). Introduction to Peace and Conflict Studies in West Africa. Ibadan: spectrum Books Ltd.

French, W. (1978). The Personnel Management Processs: Human Resources Administration 4th Edition, New York: Houghon Mifflin Company.

Griffin, R. W. (1997). Management. Delhi: A.I.T.B.S. Publishers Ltd.

Hood (1986). Exploring variations in Public Management Reform of the 1980s in Bekke 1996.

Hornby, A. S. (2005). Oxford Advanced Learner’s Dictionary. Oxford: (7th Ed.). Oxford University Press.

Hosea 4:6 – Christian Bible.

Idris, I. O. (2009). Human Resource Management in Nigeria, Ibadan: University Press.

Igwe, O. (2002). Politics and Globe Dictionary. Enugu: Jamoe enterprises (Nig.).

Jaja, S. O. (2001). “The Colonial Civil Service”. In J. I. Elaigwu and G. N. Uzoigwe (eds.) Foundations of Nigeria Federalism Series. Jos: Inst. Governance Soc. Res.

Jann, W. (1997). Public Management Reform in Germany: A Revolution without a Theory Inkikert, 1997.

Kivagu, Kithinji, Rwekaza Mukandala and Denyse, M. 2004), Reforming Pay Policy: Techniques sequencing, and politics, Chap. 4 in Levy and Kpundeh (Eds.).

175

Kreitner, R., Kinicki, A. and Buelens, M. (2002). Organizational Behaviour, 2nd European Edition, London: McGraw-Hill.

Locke, E. A. (2003). Motivation through conscious goal setting, in L. W.

Porter, G. A. Bigley and R. M. Steers (eds), Motivation and Work Behaviour, New York: McGraw-Hill Higher Education.

Locke, E. A. and Latham, G. P. (1990). A theory of Goal Setting and

task performance. Englewood Ciffs, N. J: Prentice Hall.

Madu, A. O. (2005). “A Study of Academic Performance in Senior School Certificate Examination by Public and Private Schools”. In Akpa, G. O. Udoh, S. U. and Fagbamiye, E. O. Deregulating the Provision and Management of Education in Nigeria. Jos: M. P. Ginac concept Ltd.

Mallon, T. (2001). Stolen words. San Diego: Harcourt.

Miclay, C. (2007). Understanding Public Administration in Third World. Tokyo: Restrozia.

Moorhead, G. and Griffin, R. W. (1995). Organisational Behaviour, (4th Edition), Boston: Houghton Miffhin Company.

Mullins, I. J. (2007). Management and Organizational Behaviour. (8th Ed.) England: Pearson Education Ltd.

Nwachukwu, C. C. (2006). Management Theory and Practice. Onitsha: African FEB. Publishers.

Nwafor, J. C. (2002). Church and State: The Nigerian Experience.

Nwoke, C. N. and Omoweh, D. A. (2006). The Management of Nigeria’s Energy Resources for National Development. Lagos: Nigerian Institute of International Affairs.

Obasi, I. N. (1999). Research Methodology in Political Science. Enugu: Academic Publishing Company.

Obi, E. A. and Chukwuemeka, J. N. (2006). Public Administration theory and application; Onitsha Abbrt Communication.

Odeniga, P. P. (2007). Dynamics of Public Administration. Chicago University Press.

Ofuebe, C. (2005). Scramble for Nigeria. Enugu: New Generation Book Ltd.

Ofuebe, C. (2006). Strands in Nigerian Development and Administration. Joen Printing and Publishers Company, Enugu.

176

Ogundiya, I. S. (2007). “Minimizing the Cost of Governance in Nigeria through Civil Service Reforms: Rightsizing, Downsizing or Retrenchment”. A. S. Akpofor, A.O. Afolabi, M. O. Aigbokhaevboho, B. O. Iganiga and O. S. Odiagbe (eds.) Cost of Governance in Nigeria: An Evaluative Analysis. Ekpoma: Faculty of Social Sciences. Ambrose Alli University Press.

Okonkwo, I. E. (2008). Civil Service Politics in Nigeria. Accra: Bollios Publishers.

Okpata, F. O. (2004). Bureaucratic Communication and Information Management; Enugu, Jones Communication, Publishers.

Olonode, M. L. (2007). Harmful Practices Among the Adolescents. Abeokuta: Zam-B Publishers.

Olowu, D., Adamolikun, L. (2005). “Human Resources Management”. In L. Adamolekun (ed.) Public Administration in Africa: Main issues and selected country Studies. Ibadan: Spectrum Books.

Omeh, G. C. (2010). Moral Philosophy of School Management. Nsukka: Lawnet Communication.

Onah, F. O. (2008). Human Resource Management. Enugu: John Jacob’s Classic Publishers Ltd.

Onah, F. O. (2014). Human Resource Management. 3rd Edition,

Enugu: University of Nigeria Press Ltd.

Onuoha, B. C. (2000). Fundamentals of Business and Management in Nigeria. Aba – Nigeria: Unique Printing and Packaging Company Limited.

Paul, E. and Robinson, M. (2007). ‘Performance Budgeting, Motivation and Incentives’, Chap. 18 in Robinson, Marc (Ed.), pp. 330-375.

Pearson, R. (1991). The Human Resources, Managing People and Work in the 1990s. London McGraw Hill Book Company.

Pilbeam, S. and Corbridge, M. (2002). People Resourcing: MRM in Practice.

England: Prentice Hall.

Purohit, Mahesh, C., (2007). “Corruption in Tax Administration: in Shah (Ed.), pp. 285-302.

Robbinson, D. G. and Robbinson, J. C. (1995) Performance Consulting Moving Beyond Training. San Francisco. Berret-Koehler Publishers.

177

Robbinson, Marc (Ed.), (2007). Performance Budgeting: Linkinmg Funding and Results, International Monetary Fund and Palgrave/McMillian, 552p.

Robbinson, Mark (2006). ‘The Political Economy of Governance Reforms in Uganda’, IDS Discussion Paper 386, Brighton: Institute of Development Studies, University of Sussex (May).

Yahaya, A. Dk. (1992). Civil Servants as Economic Managers II in MAMSERS Social Transformation for Self-Reliance, Proceedings of a National Conference, Ibadan: Fountain Publication.

Journals

Alutu, A.N.G. and Aluede, O. (2006). “Secondary School Students’ perception of Examination Malpractice and Examination Ethics”. Journal of Human Ecology, Vol. 20 (4): 1-2.

Amaluy, N. O. (2010). “P.P.S.M.B. Enugu Ready to Fight Examination Malpractices in Enugu State”. The Educator, vol. 6 (2): 5-6.

Collier, P. (2000). “Rebellion as Quasi-Criminal Activity”, Journal of Conflict Resolution, Vol. 44, No. 6-8.

Craig, E. S. (1974). “Behaviour modification in Management: A Review and Critique”. Academy of Management Journal. Vol. 6(2): 29-30.

Den Hartog, D. N., Boselie, P. and Paauwe, J. (2004). Performance Management: A Model Research Agenda. Applied Psychoogy: An International Review, 53 (4): 556-669).

Egbule, R. O. (2010). “The Current Public Service Salary Administration Regime and Key Issues”. Salaries and Wages Bulletin. Vol. 1(1): 10-11.

Eme, O. and Ugwu, S. C. (2011). ‘Development State Bureaucracy in Nigeria: Restructuring for Effectiveness (1999-2007), Arabian Journal of Business and Management Review, Vol. 1 (4): 41-54.

Goldsmith, A., J. Veum, and W. Darity, Jr., (2000). “Working Hard for the Money”. Efficiency Wages and Worker Effect”, Journal of Economic Psychology Vol.21 (4): 351-385.

Griffeth, R. W., Hom, P. W., Gaertner, S. (2000). “A Meta-analysis of Antecedents and Correlates of Employee Turnover: Update Moderator Tests and Research Implication for Next Millennium.” Journal of Management. Vol. 26 (3): 3-4.

178

Hale, N. M. and Weber, M. J. (2001). Predictors of Cheating among Early Adolescents. Academic and Social Motivation. Contemporary Educational Psychology. Vol. 26: 96-115.

Idris, O. M. (2006). Reassessing the Factors of Discipline in Nigeria’s Education System. International Journal of Research in Education. Vol. 3, (2) 10-12.

Ikeanyibe, O. M. (2009). “The Irony of One-party State in a Multi-party System: A Study of Political parties in Nigeria’s Fourth Republic (1999-2009). Nigerian Journal of Politics and Administration. Vol. 2 (1): 60-74.

Ikediashi, A. E. (2002). Influence of Physical classroom Environment on Academic Performance of Pupils in Public and Private Schools: a Case Study. African Journal of Education Research Vol. 1 (1) 12-13.

Kohn, Alifie, (1983). “How incentives undermine performance”. Journal for Quality and Participation. 21 (2): 6-13.

Lang, J. C. (2001). “Managerial Concerns in Knowledge Management”. Journal of Knowledge Management, Vol. 5, No. 1: 78-83.

Leithwood, K. and Jantzi, D. (2000). “The Effects of Transformation Leadership on Organizational Conditions and Student Engagement with School.” Journal of Educational Administration, Vol. 38, (2), p. 12-14.

Lunger, K. (2006). “Why You Need More Than a Dashboard to Management Your Strategy.” Business Intelligence Journal Vol. 11: 8-18.

Marr, B. (2005). “Business Performance Measurement: An Overview of the Current State of Use in the USA.” Measuring Business Excellence. Vol. 9 (3): 56-62.

McCormick, M. J. (2Vol.001). ‘Self-efficacy and Leadership Effectiveness: Applying Social Cognitive Theory to leadership, The Journal of Leadership Studies, Vol. 8, No. 1, 112-119.

McOliver, F. O. (2005). “Management in Nigeria: Philosophy and Practice.” International Journal of communication on Human Studies. 2 (1): 5-6.

Mohammad, H. Y. and Musa, A. (2008). “Comments on the Need for Reforms and Innovations in Nigeria Tertiary Education”. Journal of Education. Vol. 1 No. 1. 12-13.

179

Moon, H. (2001). The Two Faces of Conscientiousness: Duty and Achievement Striving in Escalation of Commitment Dilemmas. Journal of Applied Psychology, Vol. 86, No. 5, 69-71.

Moynihan, D. P. and Pandey, S. K. (2007). “Finding Workable levers over work motivation: Comparing job satisfaction, job involvement and organizational Commitment”. Journal of Administration and Society, Vol. 39, No. 7, 84-90.

Njoku, D. O. (2006). Equalization of Educational Opportunities in Nigeria. International Journal of Research in Education. Vol. 3: (3) 26-27.

Nonis, S. and Swift, C. O. (2001). “An Examination of the Relationship between Academic Dishonesty and Work Place Dishonesty”. Journal of Business Education, 77, (2) 14-15.

Obi, E. A. (2007). “Inter-Group Violent Conflicts in Nigeria: Towards Better Resolution, Management and Transformation.” Journal of International Politics and Development, Vol. 3(1): 213-230.

Ogunrotifa, A. B. (2012). ‘Weberian Bureaucracy and Its Problems in Nigeria: Proposing Democratic Centralism in the Management of Public Institutions’. Asian Journal of Research in Social Sciences and Humanities, Vol. 2 (10): 1-24.

Okotoni, O. (2001). ‘Problems and Prospects of Nigerian Bureaucracy’. Journal of Social Sciences, 7 (3): 223-229.

Okunamiri, P. O. (2007). ‘Evaluation of the Effectiveness of Privately owned Commercial Schools in Imo State of Nigeria.’ Journal of Educational Administration and Planning, Vol. 7, No. 1, 21-27.

Olujuwon, O. T. (2004). Teachers’ Education and the Nigerian Teacher in Nigerian Education Review, 9(1): 1-2.

Omoleke, I. I. (2004). “The Bureaucratic “Failure” in Nigeria: A Critical Analysis of the Nigerian Government Bureaucracy”. International Journal of Studies in the Humanities. Vol. 3(1): 158-160.

Onah, F. O. (2002). “Paradox of Grievance Management in a Bureaucratic Setting”. Nigerian Journal of Public Administration and Local Government (NJPALG), Vol. II, No. 1, 92-104.

Onah, F. O. (2004). “The environment and Human Resources Development in Nigeria: A Dialectical Relationship.” International Journal of Studies in the Humanities (IJOSH), Vol. 3, No. 1, 54-55.

180

Pandey, S. K. and Rainey, H. G. (2006). Public Managers’ perceptions of organizational goal ambiguity: Analyzing alternative model. International Public Management Journal, Vol. 9, No. 2, 49-53.

Pandey, S. K. and Wright, B. E. (2006). Connecting the dots in Public Management: Political Environment, organizational goal ambiguity and the Public Manager’s role ambiguity. Journal of Public Administration Research and Theory, Vol. 16, No. 4, 8-11.

Pandey, S. K., Wright, B. E. and Moynihan, D. P. (2008). Public Service Motivation and Inter-organizational citizenship behaviour: Testing a Preliminary Model. International Public Management Journal, Vol. 11, No. 1, 88-94.

Politis, J. D. (2001). ‘the relationship of various Leadership styles to Knowledge Management’. Leadership and Organization Development Journal, Vol. 22, No. 8, 32-37.

Riordan, C. M., Vandenberg, R. J., Richardson H. A. (2005). “Employee Involvement Climate and Organizational Effectiveness.” Journal of Human Resource Management. 44 (4): 2-3.

Salami, A. O. and Odeyemi, J. T. (2012). ‘An empirical Analysis of the Impact of Contributory Pension Scheme on employees’ retirement benefits of quoted firms in Nigeria. American Journal of Social and Management Sciences, Vol. 3 (1): 1-7.

Smith, P. C. and Goddard, M. (2002). “Performance Management and Operational Research: a Marriage Made in Heaven.” Journal of the Operational Research Society, 53 (3): 24-255.

Steijn, B. (2008). Person-environment Fit and Public Service motivation. International Public Management Journal, Vol. 11, No. 1, 12-14.

Stephen, B. A. (2011). ‘The Economic Implications of Monetization Policy in Nigeria’. Journal of Economics and Sustainable Development, Vol. 2 (3): 60-76.

Stonehouse, G. H. and Pemberton, J. D. (2002). Learning and Knowledge Management in the Intelligent Organization. Participation and Empowerment: An International Journal, Vol. 7, No. 5, 11-15.

Sun, B. (2007). “The Theoretic and practical Analysis of Stimulation Issue in Public Performance Management.” Personnel Monthly, Vol. 45 (5): 32-33.

181

Taplin, I. M., Winterton, J., Winterton, R. (2003). “Understanding Labour Turnover in a Labour Intensive Industry: Evidence from British Clothing Industry.” Journal of Management Studies, Vol. 40 (4): 4-5.

Taylor, J. (2008). ‘Organizational Influences, Public Service Motivation and Work Outcomes: an Australian Study.’ International Public Management Journal, Vol. 11, No. 1, 99-101.

Vallance, S. (1999). ‘Performance Appraisal in Singapore, Thailand and the Philippines: A Cultural perspective’, Australian Journal of Public Administration, Vol. 58 (3): 78-95.

Newspapers/Magazines

Abati, R. (2005). “Adams Oshomhole. The People’s President”, The Guardian. Saturday, Jan. 1.

Abiola, I. (2012). Corrupt Civil Servants have no place in my government. The Sun. Tuesday, June Vol. 7, No. 2388.

Adams, Oshiomole, (2005). Speech at the Opening Ceremony of the First Quadrennial Delegates Conference of the Maritime Workers Union of Nigeria, (MWUN) cited in Vanguard, 18th March, 2005.

Aja-Nwachukwu, I. (2011). Human Capital should be valued on the basis of skills, not certificate. The Guardian. Tuesday, Jan. 4, p. 27.

Animashaun, B. (2000). Parents flay seizure of 100,000 results by WAEC. The Guardian, Thursday, Dec. 7, p. 7.

Anyaorah, S. (2011). Educational Negligence among the Youths: A misplaced value. The Justice Magazine. May, p. 42.

Banji, A. (2008). Students and WAEC Exams: Hope deferred. The Guardian, Wednesday, October 29, p. 67.

Ben, O. (2008). Nigeria’s Education Crisis and Imperatives of Reform. The This Day, Wednesday Jan. 23, p. 80 (Vol. 13, No. 4659).

Daily Independent (2004). Principal arrested for impersonation at Examination Hall, 28 Sept.

Levinson, M. (2003). One tough job: How to find, fix ,or fire your poor performers. CIO Magazine, 41 paragraphs. Retrieved January 26, 2004 from the Lexis Nexis Academic database.

182

Meisler, A. (2003). Dead man’s curve. Workforce management, 81 (7), 44. Retrieved January 26, 2004 from Business and Company Resource Centre database.

Morrison, R. W. & Keefe, M. M. (2003). The Corporate Counsellor, 18 (4), k3. Retrieved January 26, 2004 from the Levis Nexis Academic database.

Government Publication

Ezema, C. (2010). Invitation to One-Day Meeting on Enugu State Government Structure, Organization and Functions. Mandate and Structure of Public Service Document.

Federal Republic of Nigeria. The 1979 Constitution of Nigeria. Federal Ministry of Information, 1979.

F.M.E. (2004). National Policy on Education: Abuja NERDC.

F.R.N. (Federal Republic of Nigeria) 1999 Constitution. Section 14 (4).

F.R.N. (Federal Republic of Nigeria). 1998, Implementation Guidelines on the Civil Service Reforms, Federal Government Press (FGP), Lagos, Nigeria.

Federal Republic of Nigeria (1999). Examination Malpractice Act., Lagos: Government Press.

Nigerian Government Educational Research and Development Council (2004). National Policy on Education, NERDC Press. Lagos, Nigeria, pp 36-37.

Salisu, M. (2001). Incentive structure, Civil Service Efficiency and the hidden Economy in Nig. U.N. World Institute for Development and economic Research (WIDER) Discussion Paper No. 2001/86.

Internet Sources

American Society for Public Administration, 1120 G.Street NW, Suite 700, Washington, DC 20005-3885. Available online at http://www.aspanet.org/scriptcontent/index-codeof ethics.cfm.

Armstrong and Baron (1998). “For the performance management in the context of Information Technology”. http://www.managment studyguide.com/performance management.htam.

Bob, K. (2013). “Civil Service Reform”. https.//bobkevslake.blog.gov.uk/2013/11/13/G-look-at-the-performance-management-system.

183

Cooper, C. L. & Argyris, C. (Eds.) (1998) The Concise Blackweell Encyclopedias of Management MLSWN, Massachusetts: February 7, 2004 from http://vrl-web 1.1ssi.com/wcscgi/CDM.exe?ss-COMMAND=CUST-sup & Category=UMUCPATRONI(password required).

Daggash, S. (2008). Why Nigeria Needs a National Development Master Plan. Accessed online at URL www.vanguardngr.com/content/view/19160/48/-79k.

Eromosele, S. (2008). Taming the menace of examination malpractice in Nigeria – Panorama… Accessed online at http://www.tigweb.org/youth-media/panorama/article.html?"l Arena contented … Retrieved on 21/11/11/.

Grant, C. (2009). “realist Theory in World affairs: Power politics and the Fight for Survival in the International Arena”. http:www.suit 101.com/content/classical-realism-in-the-world-943131. Retrieved, 16/4/12.

Gravelt, L. (2004). “Improving employee Productivity” www.altavisa.com. > 15-12-07.

Jackson, F. (2004). “Improving productivity” www.altavisa.com. > 15/12/07.

Ministry of civil service and Administrative Reforms. Level 7, New Government Centre, Port Louis, Republic of Mauritius http/civilservice.gov.Mu.

Rhonda Pennings (2010). Transformational Leadership: How do we get there? http://chairacademy.com.

Rozainun, Noormala, Puzziawati, Rohana (2009). Tranformational Leadership towards World Class University Status: Emerging Global Model plus. Journal of Global Management, Institute Fidal Inc. http://www.gmr.journal.com.

Stephen Covey (2010). The Transformational Leadership report. www.Transformational Leadership.net

Stephen Warrilow (2010). Transformational Leadership theory-4 key components in leading change and managing change http://ezinearticles.com/?expert Stephen Warrilow.”

William, H. (2013). Performance Management arrangements for the Senior Civil Service 2013/13/14. Human Resource Practitioners Guide

184

April 2013. content/uploads/2011/07/performance management-Arrangement-for-scs-2013-14-HR-Practitioners-Guide.

Unpublished Works/Conference Papers

Adegoroye, G. (2006). ‘Public Service Reform for Sustainable Development: The Nigerian Experience’, Keynote Address presented at the Commonwealth Advanced Seminar, 2006 Wellington New Zealand, 20th Feb. – 3rd March.

Amujiri, B. A. (1999). Motivation and Productivity in the Nigerian Civil Service. A Case Study of Enugu State, Ph.D. Thesis: PALG, UNN.

Asogwa, M. O. (2009). “Human Rights violation in Nigeria under Obasanjo Administration.” Unpublished Ph.D. Thesis: Submitted to the Department of Public Administration and Local Government, University of Nigeria, Nsukka.

Igwesi, J. E. (2007). Motivation and Productivity in Public Organizations in Nigeria: An Evaluation of Federal Capital Territory Administration (FCTA) 2004-2007.

Ngwoke, C. (2010). Church, Politics, Conscience, and power. The Moral Dimension to Nigerian’s Democratic Reward. A paper presented to First Synod Assembly of the Catholic Diocese of Nsukka, Nigeria.

Ngwoke, E. (2004). Option for the poor and sustainable Development: A Theological Critique of Politics in Enugu State, Nigeria. (Unpublished M. Thesis, Port Harcourt CIWA), p. 46.

Nwadiani, M. (2005). Curbing Examination Malpractice in the Nigerian Educational System. A lead paper presented at the First Annual Conference of the Faculty of Education, Ambrose Ali University, Ekpoma, Nov. 10-12.

Nwankwo, B. C. (2005). “Administrative Theory.” Lecture Handout p. 79.

Obioji, J. N. (2011). An evaluation of the Implementation of SERVICOM in Human Resources Management in Anambra State, Ph.D. Thesis: PALG, UNN.

Ogundiya, I. S. (2001). “Minimizing the cost of Governance in Nigeria Through Civil Service Ekpoma, July 4th – Reforms. Rightsizing, Downsizing or Retrenchment”, A Paper presented at the National Conference on cost of governance in Nigeria, held at the Faculty of Social Sciences, Ambrose Alli University, 6th.

185

Ojeikere, M. B. (2004). Examination activities in Nigeria: Victims of Social vices. Paper delivered at the WAEC Monthly Seminar, 10th September.

Olowu, D., Otobo, E. and Okotoni, M. (1997). “The role of the Civil Service in enhancing Development and Democracy: An Evaluation of the Nigerian Experience”, Paper prepared for presentation at Civil Service Systems in Comparative Perspective, School of Public and Environmental Affairs, Indian University, Bloomington, Indiana, April, http://www.edu/csrc/olowul.html.

Omeh, F. (2002). Reward system in Service. The P.P.S.M.B. A paper presented at a Workshop organized by Enugu State Post-Primary Schools’ Management Board, May 20-21 at Royal Palace Hotel, Enugu.

Onah, F. (2001). Mobilization strategies for effective Community/Rural Development in Anambra State, Paper presented at the First Anambra State Community Development summit, held at Cana House, January 2001.

Osondu, M. O. (2008). “Evaluation of Nigeria’s Membership in the Multilateral Economic organizations: A case study of Nigeria in ECOWAS (1975-2008)”. Unpublished Ph.D. Thesis: submitted to the Department of Public Administration and Local Government, University of Nigeria, Nsukka.

Salisu, M. (2001). ‘Incentive Structure, Civil Service Efficiency and the Hidden Economy in Nigeria’. Discussion Paper No. 2001/86, Word Institute for Development Economics Research, United Nations University, Sept. 2001.

Ujo, A. A. (2010). “Fifty years of Public Service in Nigeria: Problems and Prospects: A Paper presentation, Abuja.

186

APPENDICES

APPENDIX 1

INTERVIEW SCHEDULES

Department of Public Administration & Local Government University of Nigeria Nsukka 13th June, 2012 Sir/Madam,

I am carrying out a project on the performance

management in the Nigerian Civil Service taking Enugu State

as a case study. As part of my data gathering requirements, your

opinions are solicited through the attached interview questions. The

information you give will be strictly confidential and will not be

used for any other purpose than the one state above. You are

requested to answer the questions as honestly as possible.

Kindly, return your answer copy to the person who gave it to

you or direct to me through the above address or whichever way

that is suitable to you.

Thanks very much for your anticipated cooperation.

Yours sincerely,

/Signed/

Asogwa, Mathias O.

187

Please give your answers to each of the following questions by

ticking (√) in the box in front of each answer. Give one answer in

each case.

SECTION A: (PERSONAL DATA)

(1) What is your gender

Male (b) Female

(2) What is your status in your place of work?

(a) Senior staff (b) Junior staff

(3) What is your marital Status?

(a) Single (b) Married (c) Widowed

(d) Separated

(4) What is your highest educational qualification?

(a) FSLC (b) WASC/GCE (c) OND/NCE

(d) HND/Degree (e) M.Sc/M.A (f) Ph.D

(5) Where does your age range fall presently in the following

groups of age range?

(a) 15 – 24 (b) 26 – 34 (c) 35 – 44 (d) 45 – 54

(e) 55 – 64 (f) 65 – 70

188

Interview schedule on training and retraining of staff, Promotions, adequate housing and car loans on the Performance Management of Enugu State civil service

S/No. Interview Schedule Items

1. Is Enugu State civil service having the required training and re-training of staff to meet up with the required performance management system?

2. Is the management able to show clearly what the job holder will do in terms of people development and increasing the capability of their teams?

3. Do workers in Enugu State civil service receive higher pay than their counterparts in other States in order to boost their performance?

4. Is the senior public service in Enugu State civil service paying its full role of providing leadership and management without political interference?

5. Senior Public Servants in Enugu State are being promoted as a result of worker’s performance.

6. Enugu State have a regulatory body that are in charge of the workers’ salary and this body curbs any struggle that may arise between government and the workers.

7. Workers in Enugu State civil service do compete favourably with other workers in the public sectors for service deliver?.

8. Has Enugu State increased the remunerations and incentives of her workers be it on an individual or collective level?

9. Overall average for testing of the performance management of Enugu State civil service on training, retraining of staff, promotions and adequate housing and car loans.

189

Interview on the obstacles associated with workers performance management appraisal which impede performance

S/No. Interview schedule Items

10. Do Enugu State civil service have performance management system which seeks to enhance performance at all levels by focusing on key areas of activity/services to be delivered which are identified through strategic planning processes?

11. Has the head of sections/units of the Enugu State civil service being able to develop a section/unit plan based on Key Result Areas assigned by the supervising officer?

12. Do the workers of Enugu State civil service being able to be monitored during the appraisal period and documenting performance, communicating and providing feedback?

13. Do supervisors keep performance registers of their workers and know how and when he meets up with the set goal.

14. Enugu State does not give Awards regularly for outstanding work performance which had impact on public interest?

15. Is Enugu State slow in motivating employees and providing effective communications which is associated with effective implementation of change?

16. Do you think supervisors of staff in Enugu State civil service has helped staff to perform creditably well and also had been a source of motivation?

17. Enugu State government has a well laid down system of “positive’ motivators with a credible and fair risk of sanction in case of misbehaviour.

18. Enugu State civil service is using the performance management appraisal form to evaluate her numerous members of staff.

19. Individual incentives are often low-powered in Enugu State civil service, mainly because of the difficulty to find appropriate objective performance measures to which linking remuneration, as well as risks of distortions and importance of teamwork.

20. Overall average of the obstacles associated with workers performance appraisal which impedes performance management of civil service in Enugu State.

190

Interview on the hindrances of that impede on the measures employed to engender performance management of Enugu State civil service.

S/No. Interview schedule Items

21. Enugu State has not been able to improve the result of public organizations through the auditing and reviewing mechanism which is currently in vogue for political accountability and information transparency of governments.

22. Workers of Enugu State civil service are paid on the basis of pay-for-performance based on objective measures of performance.

23. Workers’ recruitment in the service had been majorly been based on merit by more on nepotism and political patronage.

24. Enugu State civil service staff is weakly motivated and are unwilling to put forth effort.

25. Politicians and parliament occasionally collude with corrupt administration if they need cash to finance the electoral process and other expenditures.

26. Corruption of some high ranking officers in the civil service discourages greater percentage of workers to perform high.

27. Anti-corruption measures such as Independent Corrupt Practices and other Related Offenses Commission (ICPC) and Economic and Financial Crimes Commission (EFCC) sometimes have been used by the government to harm political opponents.

28. Enugu State civil service staff has developed informal rules that are more in line with real constraints and they resist change.

29. Has Enugu State civil service staff been able to apply ethics, efficiency, and effectiveness in serving the public?

30. The Enugu State government’s poor budgetary allocation to the State civil service does not encourage performance management system in Enugu State.

31. Overall average that corrupt practices and neglect by the political office holders in Enugu State civil service affects performance management system.

191

APPENDIX 2

192

APPENDIX 3

193

APPENDIX 4

194

APPENDIX 5

One-sample Statistics

N Mean Std.

Deviation

Std. Error Mean

Is Enugu State civil service having the required trainings and retraining of staff to meet up the required performance management system?

500 2.3200 1.31950 .05901

Is the management level able to show clearly what the job holders will do in terms of achieving the organizational goals?

500 1.7600 .81469 .03643

Do workers in Enugu State civil service receive higher pay than their counterparts in other States in order to boost their performance?

500 1.2400 .51276 .02293

Is the senior public service in Enugu State civil service playing any full role of providing leadership and management without political interference?

500 1.2400 .065057 .02909

Senior public servants in Enugu State are being promoted as a result of workers performance?

500 1.8800 .85435 .03865

Enugu State have a regulatory body that are in charge of the workers’ salary and this body curbs any struggle that may arise between government and workers?

500 1.1200 .43124 .01929

Workers in Enugu State civil service compete favourably with other workers in the public sectors for service delivery?

500 3.6000 1.23412 .05519

Has Enugu State increased the remunerations and incentives of her workers on individual or collective basis?

500 3.8400 1.28752 .05758

195

One Sample Test

Test Value = 0

t df Sig. (2-tailed)

Mean Difference

95% Confidence Interval of the

Difference

Lower Upper

Workers rewarded based on

performance? 39.315 499 .000 2.32000 2.2041 2.4359

Annual performance evaluation report

scores of civil servants are objectively

conducted

48.300 499 .000 1.76000 1.6884 1.8316

Workers in the State civil service

receiving higher salaries than their

counterparts in other States?

0.574 499 1.905 1.24000 1.1949 1.2851

Medical services or canteen facilities

provided for workers? 42.620 499 .000 1.24000 1.1828 1.2972

Workers in the civil service do not

lack working material and these affect

their performance?

48.636 499 .000 1.88000 1.8041 1.9559

State government implements federal

government directives on minimum

wage increase to workers in service?

58.074 499 .000 1.12000 1.0821 1.1679

Promotion of workers in the state civil

service as at and when due? 57.980 499 .000 3.2000 3.0916 3.3084

Workers are rewarded through the

acquisition of additional certificates? 49.323 499 .000 2.84000 2.7269 2.9531

196

One-sample Statistics

N Mean Std.

Deviation Std. Error

Mean

Do Enugu State civil service have performance management system which seeks to enhance performance at all levels by focusing on key areas of activity/services to be delivered which are identified through strategic planning process?

500 2.4400 1.02396 .04579

Has the head of sections/units of the Enugu State civil service being able to develop a section/unit plan based on Key Areas assigned by the supervising officer?

500 3.5200 1.33160 .05955

Do the workers of Enugu State civil service being able to be monitored during the appraisal period and documenting performance and communicating performance and communicating and providing feedback?

500 4.0400 1.21711 .05442

Supervisors do not keep performance registers of their workers and know how and when he meets up with the set goals?

500 4.3200 .96927 .04335

Enugu State does not give Awards regularly for outstanding work performance which had impact on public interest?

500 4.2200 .98404 .04401

Supervision of staff in Enugu State civil service had not helped staff to perform creditably well and also had not been a source of motivation to workers?

500 4.4400 .85314 .03815

Enugu State has been slow in motivating employees and providing effective communications which is associated with effective implementation of change?

500 4.1200 1.17829 .05269

Enugu State government has a well laid down system of “positive” motivators with a credible and fair risk of sanction in case of misbehavior?

500 1.7200 .66520 .02975

Enugu State civil service is using the new performance management appraisal form to evaluate her numerous members of staff?

500 2.9400 1.21711 .05443

Individual incentives are often low-powered in Enugu State civil service, mainly because of the difficulty to finding appropriate objective performance measures to which remunerations are linked to?

500 4.3600 .62545 .02797

197

One Sample Test

Test Value = 0

t df Sig. (2-tailed)

Mean Difference

95% Confidence Interval of the

Difference

Lower Upper

Do Enugu State civil service have performance management system which seeks to enhance performance at all levels by focusing on key areas of activity/services to be delivered which are identified through strategic planning process?

53.283 499 .000 2.44000 2.3500 2.5300

Has the head of sections/units of the Enugu State civil service being able to develop a section/unit plan based on Key Result Areas assigned by the supervising officer?

Q59.109 499 .000 3.52000 3.4030 3.6370

Do the workers of Enugu State civil service being able to be monitored during the appraisal period and documenting performance and communicating and providing feedback?

74.223 499 .000 4.04000 3.9331 4.1469

Do Supervisors keep performance registers of their workers and know how and when they accomplish the set goals?

99.551 499 .000 4.32000 4.2348 4.4052

Does Enugu State give Awards regularly for outstanding work performance which had impact on public interest?

100.892 499 .000 4.44000 4.3535 4.5265

Is supervision of staff in Enugu State civil service helped staff to perform creditably well and also had not been a source of motivation to workers?

116.371 499 .000 4.44000 4.3650 4.5150

Is Enugu State slow in motivating employees and providing effective communication which is associated with effective implementation of change?

40.232 499 .000 2.12000 2.0165 3.2235

Has Enugu State government a well laid down system of “positive” motivators with a credible and fair risk of sanction in case of misbehavior?

57.818 499 .000 1.72000 11.6616 1.7784

Is Enugu State civil service using the new performance management appraisal form to evaluate her numerous members of staff.

37.479 499 .000 2.04000 1.9331 2.1469

Is individual incentives often low-powered in Enugu State civil service, mainly because of the difficulty to finding appropriate objective performance measures to which remunerations are linked to.

155.877 499 .000 4.36000 4.3050 4.4150

198

One-sample Statistics

N Mean Std.

Deviation Std. Error

Mean

500 4.4400 .94243 .04215 Do you think workers of Enugu State civil service are paid on the basis of pay-for-performance based on objective measures of performance?

500 1.4000 .84938 .03799

Are workers’ recruitment in the service based on merit or favouritism and political patronage?

500 3.8800 1.17829 .05269

Is Enugu State civil service staff weakly motivated and are unwilling to put forth effort?

500 3,9600 1.21711 .05443

Do you think the politicians and parliament occasionally collude with corrupt administration if they need cash to finance the electoral process and other expenditures?

500 4.2800 1.07885 .04825

Do you think corruption of some high ranking officers in the civil service discourages great percentage of workers from performing highly?

500 3.9200 1.35546 .06062

Is anti-corruption measures such as Independent Corrupt Practices and other Related Offences Commission (ICPC) and Economic and Financial Crimes Commission (EFCC) sometimes used by government to harm political opponents?

500 3.9600 1.18372 .05294

Do you think that Enugu State civil service staff has developed informal rules that are more in line with real constraints and they resist change?

500 3.7200 1.11539 .04988

Has Enugu State civil service staff been able to apply ethics, efficiency and effectiveness in serving the public?

500 1.6400 1.01610 .04544

Do you think that Enugu State government’s budgetary allocation to the State civil service encourages performance management system in Enugu State?

500 4.000 1.29745 .05802

199

One-Sample Test

Test Value = 0

t df Sig. (2-tailed)

Mean Difference

95% Confidence Interval of the

Difference

Lower Upper

Has Enugu State been able to improve the result of public organization through the auditing and reviewing mechanism which is currently in vogue for political accountability and information transparency of government?

105.346 499 .000 4.44000 4.3572 4.5228

Do you think workers of Enugu State civil service are paid on the basis of pay-for-performance based on objective measures of performance?

36.856 499 .000 1.40000 1.3254 1.4746

Is workers’ recruitment in the service majorly based on merit or favouritism and political patronage?

10.631 499 .000 3.88000 3.7765 3.9835

Is Enugu State civil service staff weakly motivated and are unwilling to put forth effort?

72.753 499 .000 3.96000 3.8531 4.0669

Do you think politicians and parliament occasionally collude with corrupt administration if they need cash to finance the electoral process and other expenditures?

88.709 499 .000 4.28000 4.1852 4.3748

Is corruption of some high ranking officers in the civil service discouraging great percentage of workers from performing highly?

64.667 499 .000 3.92000 3.8009 4.0391

Is anti-corruption measures such as Independent Corrupt Practices and Other Related Offences Commission (ICPC) and Economic and Financial Crimes Commission (EFCC) used sometimes by government to harm political opponents?

74.805 499 .000 3.96000 3.8560 4.0640

Do you think Enugu State civil service staff has developed informal rules that are more in line with real constraints and they resist change?

74.577 499 .000 3.72000 3.6220 3.8180

Has Enugu State civil service staff been able to apply ethics, efficiency and effectiveness in serving the public?

36.090 499 .000 1.64000 1.5507 1.7293

Is Enugu State government’s poor budgetary allocation to the State civil service encouraging performance management system in Enugu State?

68.938 499 .000 4.00000 3.8860 4.1140

200

T-Test for the three totals (total factors of the three objectives in this study).

N Mean Std.

Deviation Std. Error

Mean

Performance enhancement in Enugu State civil service.

500 1.9500 .36779 .01645

Performance management appraisal of Enugu State civil service.

500 3.5200 .56199 .02513

Measures that impede performance management in Enugu State civil service.

500 3.7440 .27020 .01208

One-Sample Test

Test Value = 0

t df Sig. (2-tailed)

Mean Difference

95% Confidence Interval of the

Difference

Lower Upper

Performance enhancement in Enugu State civil service.

118.554 499 .000 1.95000 1.9177 1.9823

Performance management appraisal of Enugu State civil service.

140.055 499 .000 3.52000 3.4706 3.5694

Measures that impede performance management in Enugu State Civil service.

276.732 499 .000 3.3400 3.3203 3.3677