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REVIEW OF THE JAPANESE MODEL WITH REGARDS TO URBAN

PLANNING, PUBLIC FINANCE MANAGEMENT, AND CAPACITY

BUILDING - SELECTED FINDINGS

Prof NJ Schoeman

Prof C Thornhill

Dr M Schoonraad

6 September 2016

CAPACITY BUILDING

PROF C THORNHILL

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Objectives of the study

• A comparison of the composition of the machinery of state as

the framework within which the public service operates;

• Outlining the process of capacity building of the public service

to perform the functions assigned to each level of government

efficiently and effectively; and

• Define and compare the framework that guides the decisions

and actions of the public servants at the three levels of

government in Japan with the South African system.

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CENTRAL GOVERNMENT STRUCTURE IN

JAPAN

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Emperor

Diet

– House of Representatives

– House of Councillors

Ministries

Cabinet

– Prime Minister

– Ministers

Cabinet

Office

Notes on Japanese system

• The functions and powers of the central government

are prescribed in the Constitution. Constitutionally it

implies that its functions are restricted.

• Functions and powers not assigned to central

government vest in the prefectures and municipalities.

• Constitutionally it implies that the scope of local

government’s functions and powers are more

extensive (and flexible i.e. any new powers and

functions are exercised by the lower levels of

government: the principle of subsidiarity applies)

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LOCAL GOVERNMENT STRUCTURE IN

JAPAN

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Municipalities (1 718)

– Directly elected mayor

– Directly elected assembly

Prefectures (47)

– Directly elected governor

– Councillors

Local government’s

– Autonomy entrenched in Constitution

– Functions devolved (not delegated)

Government functions

In South Africa

• The national sphere of government is responsible for all matters not assigned to

provinces or municipalities (in terms of schedules 4 and 5 of Constitution)

• Different from Japanese system: In South Africa all functions not specifically

assigned to provinces and municipalities vest in national government

• The public service (national and provincial) consists of ± 1, 2 million employees

The municipal service consists of 278 000 employees

In Japan

• The functions of the national government are limited to affairs relating to Japan

as a nation and internationally

• Affairs relating to various activities and people that should be dealt with in a

uniform and nation-wide manner

• The Japanese public service consists of 600 000 employees and 2 750 000

local government officials

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Comparison of national government functions

In South Africa

• Functions concurrently performed by the national and provincial

spheres, include education, health and environmental affairs and

• The exclusive jurisdiction assigned to provinces include inter alia

provincial planning, provincial roads and aspects of health.

• Advice from a national perspective is provided through the Department

of Cooperative Governance and Traditional Affairs and National

Treasury and from regional perspective through provincial governments

• South Africa has 257 municipalities consisting of 8 metros 44 district

municipalities and 205 local municipalities

In Japan

• The Japanese state divided into prefectures and municipalities.

Prefectures provide limited municipal functions and provide

municipalities with advice and training.

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Capacity building principles

• Building capacity is a life long process

• Commences with the family at home inculcating ethical guidelines,

culture and community values

• During school term knowledge is imparted and supplemented by ethical

guidelines, culture and values

• Tertiary education includes: the need for honouring societal values,

making society a co-partner in fostering ethical conduct

• The next stage is post-appointment: the employer becomes co-

responsible for improving the knowledge base of the employee

• Conditions have to be provided to allow employee to acquire new skills

and develop a work ethic

• The employee must utilize the training opportunities and also initiate

self-development by initiating training required hinmself/herself

• Thus training is the responsibility of the community; the

employer and the employee

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Recruitment and appointment

In Japan

• A prerequisite for appointment is usually a tertiary

qualification or equivalent certificate

• Appointment of a public employee is based on the

results of recruitment examinations, personnel

evaluation or other demonstrated abilities

• Special merit for those who have specialized

professional experiences outside the public service,

and the fixed-term appointment system

• An entrance examination is the primary method for

selection

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Training

• Training in the Japanese public sector could be divided into two main

phases:

* Pre entry training (as already alluded to i.e. tertiary education,

specialised skills or professional e.g. engineering or legal)

*In service training i.e. after appointment the acquiring of additional

expert knowledge or skills

# while in service the training could be offered on the job i.e. by

e.g. the employer or the immediate supervisor

# training could also be provided off the job, i.e. assigning an

employee to another institution or a university to acquire the

necessary skills or expertise or experience

• In Japan the notion of life-long training is strictly enforced

• Teaching mental attitude and service discipline so that standards may

be maintained.

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Training Japan(continued)

• The following principles apply:

– creation of a learning environment in the work place;

– innovation in and utilization of processes using working time; and

– establishment of systematic personnel training.

• In addition to this, provision is also made for self-development.

• Officials are normally rotated on a regular basis as part of their

training

• Justification for rotation/ transfers (usually in cycles of three years or

five years depending on the central, prefectural or municipal policies)

* inhibits corruption as the employee is not allowed the opportunity

to become personally involved in matters he/she should objectively

decide on;

* to gain experience of the duties and functions of other public/or

private institutions, thus promoting co-ordination

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Lessons to be learnt on training

• South Africa should consider developing a system of

structured training adapted from time to time to meet

the requirements for each level through which an

official progresses.

• This training should include skills, values, knowledge

and managerial competencies

• A continuous inclusion of ethical values in all training

programmes

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Measures to promote values and ethics in South Africa

• Various measures to promote ethical conduct – e.g. Public Service

Commission’s role to promote a high standard of ethics

• Eight (Batho Pele) principles defined that should apply in service

delivery viz. consulting users of services - setting service standards;

increasing access; ensuring courtesy; providing more and better

information; increasing openness and transparency; remedying mistakes

and failures; and getting the best possible value for money

• The establishment of the Public Administration Ethics, Integrity and

Disciplinary Technical Assistance Unit (Public Administration Management

Act, 11 of 2014) - provides technical assistance and support to

institutions in all spheres of government regarding the management of

ethics, integrity and disciplinary matters

• Prevention and Combating of Corrupt Activities Act, 12 of 2004 aims to

strengthen the measures to combat corruption and corrupt activities and

establishes a register to place restrictions on persons and enterprises

convicted of corrupt activities related to tenders and contracts

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Current dilemmas

• Disconcerting to note that only 54% of cases investigated had been resolved

during the period 2014/2015 while 19 of the 43 national departments (44%)

and 54 of the 114 provincial departments (47%) did not respond to enquiries

by the Public Service Commission

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• In Japan - strict adherence to ethical rules and guidelines – limited occurrence of

unethical actions

• Various measures developed to curb or discourage unethical conduct

• These measures are an extension of societal values, culture and ethical conduct

inculcated since childhood

• Actions taken against defaulters are also strictly enforced, discouraging an

official from becoming involved in unethical conduct

• Decentralized decision making requires concurrence of all officials involved

• The retirement bonus: a strong incentive for a clean service record (49. 59 times

the monthly salary at retirement after 35 years)

• system allows a citizen to claim compensation in a case of an official found guilty

of corruption which negatively affected an individual ( e.g. tender)

• Common sense of ethics among government officials due to a long culture of

ethical public service

• Proper level of remuneration based on annual review of salaries

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Actions against defaulters: the Japanese approach

Concluding comments

• Issues which could improve capacity in

South Africa

* Entrance examinations for new entrants based on criteria establishing

knowledge of the post, expertise and skills (without political

involvement)

* Life long training according to a predetermined programme to meet

changing requirements of a post

* Decisive action in the case of misconduct

* Incentives for a clean service record on retirement

* Career appointments to prevent political interference

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