MYANMAR PAY,
       COMPENSATION, AND
       HUMAN RESOURCE
       MANAGEMENT REVIEW




Ministry of
Planning and Finance
  MYANMAR PAY, COMPENSATION, AND
HUMAN RESOURCE MANAGEMENT REVIEW




    Ministry of
    Planning and Finance
FOREWORD
The Myanmar Pay, Compensation and Human Resource Management Review was undertaken in 2015-2017 in
response to the Government of Myanmar’s request for advice to inform compensation and human resource
policies that reflect country-specific challenges. The analysis, generously supported by Denmark, Australia and
UK-DFID, was jointly conducted by the Government of Myanmar and the World Bank.
In addition to the analysis, the review aimed to develop capacity of government agencies responsible for wage-
bill and human resource management. We know that capacity development happens within institutions, and can
only be effective, if government assumes strong ownership. In this context, the Union Cabinet established the
“Pay, Compensation, and Human Resource Review Implementation Inter-Ministerial Committee” comprising
key ministries to oversee the review. The World Bank team worked closely with a task team in the Ministry of
Planning and Finance. Focal points in each of the ministries of the inter-ministerial committee also actively
participated.
The main methods used to review the government’s pay and compensation system included: i) review of
government regulations; ii) analysis of administrative data; iii) focus group discussions and a small survey to
assess civil servants’ perception about pay and human resource functions; and iv) a model that simulates the
impact of potential changes to pay and employment, customized to Myanmar’s circumstances. This model can
be applied by the Ministry of Planning and Finance for future wage-bill planning.
Specifically, the model helped highlight that size of the wage bill is not an immediate concern. Its rapid growth
in recent years, as well as growing fiscal vulnerabilities from potential external shocks, demand closer attention
to overall growth in the public-sector wage bill. Future salary increases may need careful targeting given the
growing attractiveness of the private sector as a career option for young talent and professionals.
The review also drills down on the education sector. Constituting nearly 40 percent of the total workforce
employed by the Union Government, the education sector makes up nearly one-half of the union budget’s
wage bill. The review also provides important context for teacher policy on employment and pay, and suggests
reform options for managing teacher workforce for better education outcomes.
With this review, we hope to present a comprehensive picture of the Myanmar civil service pay, compensation
and human resource management systems, including their strengths and challenges. The findings suggest a
series of policy priorities for improving the performance of the civil service.
The report includes a wealth of findings and practical, realistic recommendations. However, it is only the first
step on the long journey of evidence-based reforms to manage wage bill and performance of the Myanmar civil
service. The Government of Myanmar and the Bank will continue to work together during implementation of
the recommendations, and for future research and analysis.
We would like to thank all the dedicated government officials and World Bank staff who conducted this review.
.




U Tun Tun Naing 	                                                Ellen A. Goldstein
Permanent Secretary 	                                            Country Director
Ministry of Planning and Finance 	                               for Myanmar, Cambodia and Lao PDR


                                                                                                                 1
    Table of Contents
    Acronyms 	..............................................................................................................................................................	        7

    Acknowledgments 	.............................................................................................................................................	                  8

    Summary 	 ..............................................................................................................................................................	 10
    	       Context 	............................................................................................................................................................	   10
    	       The objectives of the review 	              .........................................................................................................................	   10
    	       Approach and methodology of the review	 ................................................................................................	                                11
    	       Affordability of Myanmar’s current wage	...................................................................................................	                             12
    	       Myanmar’s current civil service compensation system	 .............................................................................	                                      12
    	       Competitiveness and adequacy of Myanmar’s civil service	 .....................................................................	                                          13
    	       Comparison of Myanmar’s civil service compensation to “real world” alternatives	 ..........................	                                                             14
    	       Ability of Myanmar’s civil service attract and retain the skills it needs	 .................................................	                                            14
    	       Fairness and transparency in Myanmar’s civil service compensation	 ....................................................	                                                 15
    	       Key human resource functions and management of Myanmar’s civil servants	 ...................................	                                                            16
    	       Management of the teacher workforce	 ......................................................................................................	                             17
    	       Policy recommendations for the way forward	 ...........................................................................................	                                 19

    Chapter 1: Introduction	 ................................................................................................................................	 23
    Chapter 2: The Myanmar Civil Service in Context	 ..........................................................................	27
    	       Governing laws and regulations of the civil service	 ................................................................................	 28
    	       Relevant state structures for the management of the civil service	 .........................................................	 29

    Chapter 3: How Affordable Is Myanmar’s Wage Bill?	 ....................................................................	 34
    	       Public sector employment	 ............................................................................................................................	                  37
    	       Wage bill forecasting model	 .........................................................................................................................	                  39
    	       Recommendations for managing the wage bill and the work force	 .......................................................	                                                  42
    	       Payroll management	 .......................................................................................................................................	             43

    Chapter 4: How Does Myanmar Pay Its Civil Servants?	 ................................................................	 45
    	       Introduction of civil service compensation	 ..............................................................................................	                              45
    	       A few words about terminology	...................................................................................................................	                       45
    	       A simple analytical framework that helps explain compensation	............................................................	                                              46
    	       Myanmar’s current civil-service compensation system	 ............................................................................	                                       47
    	       Base salary and regional allowance as the main monetary components of compensation	.................	                                                                    50
    	       Departments’ provision of in-kind allowances to certain posts and locations	.....................................	                                                       56
    	       Outdated rates for some operational expenses	 ..........................................................................................	                                62
    	       Personnel-related expenditures appearing under a number of budget lines	 .........................................	                                                      62

    Chapter 5: Competitiveness, Transparency And Fairness Of Civil Service Compensation	64
    	       Assessing Myanmar’s civil service compensation	 .....................................................................................	                                   64
    	       Competitiveness of Myanmar’s civil service compensation	 ...................................................................	                                            66
    	       Civil service in the context of living conditions in Myanmar	 ................................................................	                                          67
    	       Civil service in the context of “real world” employment conditions	 ....................................................	                                                69
    	       Ability of the civil service to attract and retain skills	................................................................................	                              73
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	       Fairness and transparency of civil service compensation	 ........................................................................	                                    77
	       Managing compensation and recommendations for the way forward	 ..................................................	                                                    83
	       Recommendations for the immediate to near terms	.................................................................................	                                    85
	       Medium to long-term options	 .....................................................................................................................	                   89

Chapter 6: Managing Human Resources For Better Performance	 ..........................................	 92
	       Introduction	 ...................................................................................................................................................	     92
	       Human resource planning and human resource systems	..........................................................................	                                         93
	       Recruitment and selection	 ............................................................................................................................	               95
	       Deployment and retention	 ...........................................................................................................................	                100
	       Human resource planning	 ...........................................................................................................................	                 119
	       Promotions	 ......................................................................................................................................................	   101
	       Performance appraisals	 ................................................................................................................................	             103
	       Options for managing human resources	 ....................................................................................................	                           104

Chapter 7: How Does The Government Manage And Compensate	 .....................................	 108
Its Teacher Work Force?	
	       The importance of the education sector in the context of pay and compensation	 ............................	                                                          108
	       Overview of the education system and teachers	.......................................................................................	                                110
	       Recruitment and selection	 ............................................................................................................................	              114
	       Deployment and retention	 ............................................................................................................................	               118
	       Managing pay and compensation	 ................................................................................................................	                      123
	       Learning and development	 ...........................................................................................................................	                128
	       Progression and promotion	 ..........................................................................................................................	                129
	       Overall education policy	 ................................................................................................................................	           130
	       Education sector options for the way forward	 ..........................................................................................	                             131

Chapter 8: The Way Forward: Options and Recommendations	 ................................................	 133
References	.............................................................................................................................................................	 136
Annexes	 ..................................................................................................................................................................	 140
	       Annex 1 Glossary	 ..........................................................................................................................................	         140
	       Annex 2 Myanmar’s Compensation-Related Entitlements	 .....................................................................	                                           148
	       Annex 3 Civil Service-Related Regulations Reviewed	 .............................................................................	                                    150
	       Annex 4 Civil Service Job Titles by Grade	 ................................................................................................	                          153
	       Annex 5 Number of Assigned Vehicles by Department and Grade, 2016	...........................................	                                                        157
	       Annex 6 Monthly Fuel Allowance and Estimated Kyat Value by Department and Grade, 2016	 ....	                                                                          162
	       Annex 7 Monthly Telephone Allowance by Department and Grade, 2016 (in MMK)	......................	                                                                    168
	       Annex 8 Housing Benefit by Department and Grade, 2016	 ..................................................................	                                            173
	       Annex 9 MPLCS Data and Comparisons with Civil Service Base Salaries	 ........................................	                                                        179
	       Annex 10 Compensation Questions from a Small Survey of Civil Servants	 .....................................	                                                         181
	       Annex 11 Developing Appropriate Rates and Regulations for Operational Allowances	...................	                                                                 183
	       Annex 12 Human Resource Management System Survey	 ......................................................................	                                             185
	       Annex 13 Analysis of Civil Service Job Descriptions (from Ministry of Education)	........................	                                                            205
	       Annex 14 Sample Vacancy Announcement	 .............................................................................................	                                  211

                                                                                                                                                                                    3
    Figures, Tables, and Boxes
    Figure 1: General framework of public employment and review coverage	 ................................................	27
    Figure 2: The Structure of Myanmar’s union and sub-national administration	 ..........................................	 30
    Figure 3: Union Government ministries and offices	 ........................................................................................	 31
    Figure 4: Comparison of international wage bills, 2014 (percent of GDP)	 ................................................	 35
    Figure 5: Wage bill growth in Myanmar, FY 2011/2012 to FY 2015/2016 (percent)	 ................................	 36
    Figure 6: Public employment in Myanmar, FY 2015/2016	 .............................................................................	 37
    Figure 7: Employment in ministries and state administrative organizations, 2011-2015	............................	 37
    Figure 8: Breakdown of ministries’ expenditure (in billions of MMK)	 ........................................................	 39
    Figure 9: Breakdown of ministries’ expenditure (% share)	 .............................................................................	 39
    Figure 10: Expenditure breakdown - contribution to growth (%)	 ................................................................	 39
    Figure 11: Nondiscretionary spending vs. recurrent revenue (% of GDP)	 ................................................	 39
    Figure 12: Hypothetical scenario if the Ministry of Education recruited 100,000 new teachers	..............	 41
    Figure 13: Hypothetical scenario of a 10 percent increase in base salary	 .....................................................	 42
    Figure 14: Proposed template for collecting individual-level payroll data	.....................................................	 43
    Figure 15: Civil service monetary earnings, 2014-2016	....................................................................................	55
    Figure 16: Civil service monetary earnings compared with minimum wage worker, 2014-2016	 ..............	72
    Figure 17: Trade-offs - Expenditures and compensation	 ................................................................................	 84
    Figure 18: Framework for diagnostic assessment of the Myanmar civil service HRM system	 ................	 93
    Figure 19: The process flow of recruitment for gazetted officers	 ................................................................	 96
    Figure 20: Recruitment and human resource functions through job analysis and use of job descriptions	 106
    Figure 21: Breakdown of school positions by gender	 ...................................................................................	111
    Figure 22: Teachers’ level of experience by school remoteness category	 .....................................................	111
    Figure 23: Primary teachers’ level of experience (percent) by school remoteness categories	 ...................	112
    Figure 24: Teachers’ experience by year range (all teachers)	 ...........................................................................	112
    Figure 25: Teachers’ experience by year range and school level	 .....................................................................	 113
    Figure 26: Education degrees of new teachers versus experienced teachers at primary school level	.......	 113
    Figure 27: Students’ primary motivations for entering the teaching profession	 .........................................	 114
    Figure 28: Trainees’ choice of location between family and government need (percent)	...........................	115
    Figure 29: Students’ personal preference for location of school (percent)	...................................................	 116
    Figure 30: Allocation of primary schools by size category	 .............................................................................	121
    Figure 31: Preliminary wage bill to expenditure estimate of hiring an additional 80,000 teachers	 ...........	127



    Table 1:    Employment by base pay grade, FY 2015/2016	 ...............................................................................	 38
    Table 2:    Analytical framework of common components of public sector compensation	 .......................	 47
    Table 3:    Main components of compensation in Myanmar’s civil service (2015)	 .........................................	 48
    Table 4:    Base salaries and regional allowances in FY 2015/2016 (MMK per month)	 ................................	50
    Table 5:    Base salary scales for civil servants, FY 2012/2013 to FY 2015/2016 (in MMK per month)	....	 53


4
Table 6: Additional compensation-related parameters for civil servants and others (in MMK)	................	 54
Table 7: Union-level civil service posts by grade, FY 2015/2016	 ................................................................	 56
Table 8: Main in-kind allowances reported by six ministries and UCSB in Nay Pyi Taw, 2016	 ................	 59
Table 9: Budget classification lines containing personnel-related expenditures	 ...........................................	 63
Table 10: Base salary as percent of estimated monthly household consumption expenditures	................	 69
Table 11: Turnover in a sample of nine departments with at least 1,000 staff, 2015-2016	........................	 74
Table 12: Job families implied in Civil Service Rules 2014	 ..............................................................................	81
Table 13: Health workers by function, 2013-2014	 ............................................................................................	82
Table 14: Teachers and school heads in basic education, FY 2015/2016	 .....................................................	 83
Table 15: Turnover rates (October 2015-September 2016)	.............................................................................	 94
Table 16: Recruitment data for civil service positions	......................................................................................	 95
Table 17: Review of job descriptions in the Myanmar civil service	 ..............................................................	 98
Table 18: “Best person” versus current practice in Myanmar	 ........................................................................	100
Table 19: Myanmar promotion assessment system	 ..........................................................................................	102
Table 20: Myanmar performance appraisal system	...........................................................................................	 103
Table 21: Teachers’ hours per week across ASEAN countries	 ......................................................................	 123
Table 22: Base salaries and regional allowances for teachers, head teachers, and	 ........................................	 124
	          township education officers, FY 2015/2016	
Table 23: Base salary scales for civil servants in education, FY 2012/2013 to FY 2015/2016	 ................	 126
	         (in MMK per month)	
Table 24: Sequencing reform options for pay, compensation, and human resource reform	 .....................	 133



Box 1: Timeline for developing Myanmar’s customized wage bill model	 ....................................................	 40
Box 2: Looking beyond base salary - perceptions from focus group discussions	 ......................................	 49
Box 3: Listening to civil servants - pilot focus groups and survey	 ................................................................	 65
Box 4: Pay and corruption - what is the evidence?	..........................................................................................	 67
Box 5: Competitiveness and adequacy of compensation - perceptions from focus group discussions	...	 76
Box 6: Transparency and equity - Perceptions from focus group discussions	 ............................................	 79
Box 7: Understanding job evaluation	 ................................................................................................................	80
Box 8: The value of monitoring indicators	 ......................................................................................................	87
Box 9: Adjusting to reality: Reforming operational expenses to improve service delivery	 .......................	88
Box 10: The National Education Law and teacher management	 ................................................................	 109




                                                                                                                                                           5
    Annex Tables, Figures, and Boxes
    Table A1: Glossary	 ................................................................................................................................................	 140
    Table A2: Civil service job titles by grade	 ..........................................................................................................	 153
    Table A3: Number of assigned vehicles by department and grade, 2016	 ....................................................	157
    Table A4: Monthly fuel allowance and estimated kyat value by department and grade, 2016	...................	 162
    Table A5: Estimated travel distance per fuel amount	 ......................................................................................	 167
    Table A6: Monthly telephone allowance by department and grade, 2016 (in MMK)	 .................................	 168
    Table A7: Housing benefit by department and grade, 2016	 ...........................................................................	 173
    Table A8: Selected data from the 2015 MPLCS	...............................................................................................	 179
    Table A9: Estimated total consumption expenditures per household, MMK/month	 ..............................	180
    Table A10: Base salary as multiple of monthly total consumption expenditures per adult equivalent	....	180
    Table A11: Compensation questions from a small survey of civil servants	 ...............................................	181
    Table A12: Summary of part A - respondent background characteristics	 ..................................................	 186
    Table A13: Breakdown of gazetted and non-gazetted samples by region	 ...................................................	188
    Table A14: Survey section 1 - establishment management and control	 ......................................................	 189
    Table A15: Survey section 2 - recruitment and selection	.................................................................................	 190
    Table A16: Survey section 3 - deployment and retention	 ...............................................................................	 191
    Table A17: Survey section 4 - performance appraisal	 ......................................................................................	 192
    Table A18: Survey section 5 - promotion	 ..........................................................................................................	 193
    Table A19: Survey section 6 - learning and development	 ...............................................................................	 194
    Table A20: Survey section 7 - pay and compensation	 .....................................................................................	 195
    Box A1: Summaries of respondents’ comments on selected survey questions	 ...........................................	 197
    Figure A1: Histogram summary of civil servant work environment index	.................................................	200
    Figure A2: Comparisons of overall index score by respondent characteristic	 .............................................	201
    Table A21: Survey section 1 - establishment management and control, item summary	 ...........................	202
    Table A22: Survey section 2 - recruitment and selection, item summary	 .....................................................	202
    Table A23: Survey section 3 - deployment and retention, item summary	 ....................................................	202
    Table A24: Survey section 4 - performance appraisal, item summary	...........................................................	 203
    Table A25: Survey section 5 - promotion, item summary	 ..............................................................................	 203
    Table A26: Survey section 6 - learning and development, item summary	 ....................................................	 203
    Table A27: Survey section 7 - pay and compensation, item summary	 ..........................................................	 204
    Table A28: Analysis of civil service job descriptions	 ......................................................................................	205
    Figure A3: Sample vacancy announcement	 .......................................................................................................	211




6
ACRONYMS
ASEAN	     Association of Southeast Asian Nations   MNPED	  Ministry of National Planning and
ATEO	      Assistant Township Education Officer     	       Economic Development
B.Ed.	     Bachelor’s Degree in Education	          MOE	    Ministry of Education
CESR	      Comprehensive Education Sector           MOF	    Ministry of Finance
	Review	                                            MOLIP	  Ministry of Labor, Immigration, and
Cert.Ed. 	 Certificate of Education                 	Population
CSO	       Central Statistical Office               MOPF	   Ministry of Planning and Finance
DBE	       Department of Basic Education            MPLCS	  Myanmar Poverty and Living Conditions
DG	        Director General                         	Survey
DDG	       Deputy Director General                  MTFF	   Medium-term Fiscal Framework
DTEC 	     Diploma in Teacher Education             NEPC	   National Education Policy Commission
	Competency                                         NESP	   National Education Strategic Plan
DT.Ed. 	   Degree in Teacher Education              OECD	   Organization for Economic Co-operation
DTEO	      Department Township Education Officer    	       and Development
DWT	       Daily Wage Teachers                      PAT	    Primary Assistant Teacher
EC	        Education College                        PATC 	  Primary Assistant Teacher Certificate
FGD	       Focus Group Discussion                   PRESET	 Pre-Service Teacher Training
FY	        Fiscal Year                              PS	     Permanent Secretary
GAD	       General Administration Department        REO	    Regional Education Office
GDP	       Gross Domestic Product                   SAT	    Senior Assistant Teacher
ID	        Identification                           SEO	    State Education Office
IDP	       Internally Displaced Person              SITE	   School-based In-service Teacher
IOE	       Institute of Education                   	Education
JAT	       Junior Assistant Teacher                 TEIs	   Teacher Education Institutions	
JATC 	     Junior Assistant Teacher Certificate     TEO	    Township Education Officer
LAO PDR	 Lao People’s Democratic Republic           UCSB	   Union Civil Service Board
LFS	       Labor Force Survey                       USA	    United States of America
MDEF	      Multi-Donor Education Fund               USD	    United States Dollar
MMK	       Myanmar Kyat




                                                                                                     7
    ACKNOWLEDGMENTS
    The World Bank would like to express its deepest appreciation to the Government of Myanmar for its
    extraordinary degree of cooperation throughout the preparation of this report, and for the extensive data
    sharing involved. Furthermore, the team would like to acknowledge the crucial role of the members of the
    Pay, Compensation, and Human Resource Review Implementation Inter-Ministerial Committee, who guided
    the team in understanding Myanmar’s pay, compensation, and human resource management systems. Data
    collection and analytical work were conducted in collaboration with the Ministry of Planning and Finance;
    Ministry of Home Affairs; Union Civil Service Board; Ministry of Health and Sports; Ministry of Education;
    Ministry of Electricity and Energy; and Ministry of Labor, Immigration, and Population.

    In the Ministry of Planning and Finance (MOPF), the team would especially like to thank His Excellency
    Minister U Win Shein (retired); H.E. Minister U Kyaw Win; H.E. Deputy Minister U Maung Maung Win; H.E.
    Deputy Minister U Set Aung; Permanent Secretary U Tun Tun Naing; Director General (Budget) Daw Nwe Nwe
    Win; Director General (Planning) U Maung Maung Tint; Director General (Central Statistical Organization)
    Dr. Daw Wah Wah Maung; Director General (Security Exchange Commission) Daw Tin Tin Ohn; Managing
    Director (Myanma Agricultural Development Bank) U Min Thu; Deputy Director General (Security Exchange
    Commission) Daw Ni Ni Swe; Director (Minister’s Office) U Ko Myint; Director (Planning) Dr. Kyaw San;
    Deputy Director (Budget) Daw Thin Thin Maw; the task-team members and officials from MOPF for their
    full effort in guiding the team in completion of the study. The team also would like to thank team members of
    the medium-term fiscal framework.

    In the General Administration Department of the Ministry of Home Affairs, the team would like to thank
    Permanent Secretary/Director General U Tin Myint; former Director General U Tun Hla Aung and the officials
    who took the time to meet with the team.

    In the Union Civil Service Board, the team would like to thank Chairman H.E. U Kyaw Thu (retired); Chairman
    H.E. Dr. U Win Thien; Member U Win Maw; Member U Than Tun; Director General (Civil Service Selection
    and Training) U Kyaw Soe; Pro-Rector of the Lower Myanmar Central Institute of Civil Service, U Zaw Moe
    Win, and the officials who provided data, particularly for chapter 6 on human resource management.

    In the Ministry of Education, the team would like to express its appreciation to members of the Department
    of Human Resource and Education Planning of the Ministry Education, Director General Dr. Win Tun;
    Deputy Director General U Ko Lay Win as well as to former Director General of the Department of Basic
    Education, Dr. Zaw Win; Budget Director, Ministry Office, Daw Khin Khin Gyi; Deputy Budget Director,
    Ministry Office, Daw Khin May Thit, and the officials who shared their valuable insights.

    In the Ministry Health and Sports, the team would like to extend thanks to Deputy Permanent Secretary U Sein
    Win; Deputy Director Dr. Soe Htet; Assistant Permanent Secretary Dr. Thant Zin Htoo; Deputy Director Dr.
    Soe Htet and the officials from the Department of Health’s Professional Resource Development and
    Management Department.

    In the Ministry of Electricity and Energy, the team would like to thank former Deputy Permanent Secretary
    (Retired) U Htay Aung; Deputy Permanent Secretary U Soe Myint; Director (Finance) Daw Nyunt Nyunt Lwin
    and the officials who collaborated in collecting data.




8
In the Ministry of Labor, Immigration, and Population, the team would like to thank Director General
(Department of Labour) U Win Shein; Director General (Department of Labour Relations) U Maung Maung
Kyaw; Deputy Permanent Secretary, U Maung Maung Than and the officials from the Minister’s Office and
Department of Labour.

In the Office of the Auditor General of the Union of Myanmar, the team would like to thank Permanent
Secretary Daw Khin San Oo and the officials who provided valuable information and met with the team.

In the Ministry of Commerce, the team would like to thank Deputy Director General (Trade) U Min Min,
Director (Trade) U Ko Ko Lay, and the officials who met with the team. We are grateful to the officials from
the member ministries of the Inter-Ministerial Committee who provided valuable comments on this report and
attended trainings on wage bill modeling trainings.

None of those named here are, however, responsible for any of the conclusions in this report. Any errors are
the responsibility of the authors.

The report was prepared by a World Bank team comprising Soren Davidsen, Task Team Leader, Senior
Governance Specialist, World Bank; Jana Orac, Consultant; Zac Mills, former Governance Specialist, World
Bank; Daw Soe Nandar Linn, Consultant, and Andy Ragatz, Senior Education Specialist, World Bank. Meng
Foon Lee, Consultant; Daw Kyi Pyar Chit Saw, Consultant; Marylin Hillarious, Consultant and Jeffery Marshall,
consultant, also provided inputs to the report.

The review was funded through the Myanmar Partnership Multi-Donor Trust Fund.

The work was conducted under the overall guidance, in the World Bank, of Abdoulaye Seck, former Country
Manager, Myanmar; Ellen Goldstein, Country Director for Myanmar, Cambodia and Lao PDR; Shabih A.
Mohib, Program Leader; and Rob Taliercio, Practice Manager. The team is grateful for their support and
guidance provided.

The team also appreciates the very valuable comments and suggestions from colleagues at the World Bank:
Vivek Srivastava, Lead Public Sector Development Specialist; Lars Sondergaard, Program Leader, Poverty and
Human Development, Education; Zahid Hasnain, Senior Public Sector Specialist; Zubair Khurshid Bhatti,
Senior Public Sector Management Specialist; Daw Hnin Hnin Pyne, Human Development Specialist; Daw
Nang Mo Kham, Human Development Specialist; and Daw Mar Mar Thwin, Education Specialist; as well as
from Peter Lysholt Hansen, Ambassador of Denmark; Declan Magee, Senior Economic Adviser, DFID; and
Tini Chatterjee, former Economist, DFAT.




                                                                                                               9
     SUMMARY

     Context
     1.	       The ability of Myanmar’s public sector to perform depends critically on its civil service. The
     quality of the civil service depends, in turn, on an efficient compensation and human-resource management
     system able to attract and retain qualified personnel. This will be crucial to Myanmar’s public sector functioning
     in particular, and to Myanmar’s development trajectory more broadly. This context forms the backdrop of
     the Pay, Compensation, and Human Resource Review. Public sector reform is inevitably a difficult reform
     agenda in developing countries, but the Government of Myanmar has demonstrated sustained commitment to
     initiating the process of modernizing and enhancing the productivity of its public sector since 2010.

     2.	     There are four key pieces of legislation regulating the civil service in Myanmar: the Constitution,
     promulgated in 2008; the Law on the Union Civil Service Board (UCSB) of 2010; the Public Service Personnel
     Act of 2013, codifying a unitary civil service comprising gazetted and non-gazetted officials; and Civil Service
     Rules and Regulations, 2014, guiding implementation of the Public Service Personnel Act.

     3.	     The legal framework governing the civil service is clear and comprehensive. And yet, the
     ambiguity of the overall governance framework—first and foremost, the relations between central and local
     government levels—affects the management of the civil service. For example, there is a lack of clarity regarding
     the authority for deconcentrated agencies to recruit and select staff at the subnational levels.

     4.	     Under difficult circumstances, the Government of Myanmar has demonstrated a sound ability
     to manage basic human resource functions and to control the wage bill. A series of pay adjustments have
     been introduced since 2010. In the past (between 1972 and 2010), the strategy to curtail public spending was to
     fix wages in nominal terms for long periods.

     5.	       Overall, three points concerning the management of the Myanmar civil service are significant.
     First, no single central agency is responsible for civil service management in Myanmar. Functions are performed
     across several agencies. In practice, line agencies have a great deal of practical autonomy, to a degree that
     is unusual although not unique. As such, the authority for human resource management is centralized, yet
     fragmented, at the union level. Second, basic systems—for example, consolidated, centralized payroll and
     human-resource management systems (including a unique identifier for each civil servant, for example)—for
     civil service management are not in place, which is only to be expected in view of Myanmar’s development level
     and history. Third, trade unions are not recognized for collective bargaining by the Government of Myanmar.

     The objectives of the review
     6.	      In 2015, the Ministry of Planning and Finance (MOPF) requested technical support from the
     World Bank to undertake a pay and compensation study, and a human resource review. Specifically,
     the Government of Myanmar asked for assistance to establish a robust analytical and empirical basis to
     inform compensation and human-resource management reforms. MOPF indicated a particular interest in the
     affordability, transparency, fairness, and competitiveness of compensation. In January 2016, the Union Cabinet
     established the Pay, Compensation, and Human Resource Review Implementation Inter-Ministerial Committee
     to oversee the review.1

     1  The Committee’s eight members include MOF; MNPED; UCSB; Ministry of Energy; Ministry of Health; Ministry of Education;
     Ministry of Labor, Employment, and Social Affairs; and Ministry of Home Affairs and its General Administration Department. (See
     Ministry of Finance, Union Minister Office, Notification No. 12/2016, 25 January 2016.)

10
7.	       In parallel, the Ministry of Education requested assistance on a review to identify “the
impediments to effective teaching”, many of which are thought to be related to the pay and
employment regime. Drilling down into the education sector makes sense for several reasons. The education
sector constitutes nearly 40 percent of the total workforce employed by the Union Government, and makes up
nearly one-half of the union budget’s wage bill. Retired teachers make up one-third of all union government
pensioners. It also enables a close look at the link between pay, human resource management, and service
delivery.

8.	      Against this backdrop, the review was launched in response to the Government of Myanmar’s
request for analytical support to make compensation and human resource policies more evidence-
based. Thus, the overarching objectives have been to provide the best possible analysis and to bring to bear
international practice and expertise on Myanmar-specific problems. This approach reflects a fundamental value:
policy decisions should be informed by robust evidence. It is up to Myanmar’s policy makers to weigh that
evidence, take account of any other considerations, and make the choices that best serve Myanmar’s needs.

9.	    The objectives of the review were distilled into three key themes—1) pay and compensation, 2)
human resource management, and 3) the case study of the education sector—based on consultation between
the World Bank and the Pay, Compensation and Human Resource Review Implementation Inter-Ministerial
Committee. The focus on pay and compensation centers on these questions in four key areas:

        1)	   Affordability: How affordable is Myanmar’s wage bill?
        2)	   Transparency: Is civil service compensation clear and easy to understand?
        3)	   Fairness (equity): Do equal jobs receive equal compensation?
        4)	   Competitiveness and adequacy: How does civil service compensation compare to alternatives? Is it
              sufficient for a reasonable standard of living?

The focus on human resource reforms addresses these key functions:
       •	 How does the Government of Myanmar undertake workforce planning and establishment
            control?
       •	 How are civil servants recruited, selected and promoted?
       •	 How are civil servants deployed, and what are the challenges for retaining public servants in the
            workforce and in remote and poor areas?
       •	 How does the Government manage its staff for better performance through staff appraisals?

The focus on employment and pay in the education sector examines these questions:
       •	 How attractive is the teaching profession in Myanmar and who enters the profession?
       •	 How are teachers recruited, selected, promoted, retained and deployed?
       •	 How are teachers supervised and managed?
       •	 How does the Government of Myanmar undertake teacher workforce planning, and what are the
            projected needs of teachers?
       •	 How does the system of ongoing teacher professional-development function, and what support
            and opportunities exist for teachers?

Approach and methodology of the review
10.	    The approach of the review has been to build ownership of the findings and develop capacity,
underpinned by rigorous analysis. The World Bank team was linked with a task team in MOPF. Focal
points were also identified in each of the ministries comprising the review implementation inter-ministerial
committee. The World Bank team aimed to develop capacity in the Government of Myanmar for taking on

                                                                                                                 11
     new approaches to pay, workforce planning, and human resource management. Several deliverables, such as
     training sessions and guidance notes, were produced in the process. This served to build a mutual understanding
     between the Government and the World Bank team about the data required for the analysis, and to strengthen
     the systems for pay, compensation, and human resource management. Moreover, the Government of Myanmar
     has reviewed this report in such detail that it will be approved at the cabinet level. The review is the first
     diagnostic review of the Myanmar civil service.

     11.	     The Government of Myanmar and the World Bank jointly conducted the review. The main
     methods used in this review were: 1) a review of government regulations; 2) analysis of government data;
     3) small-scale qualitative research pilots, such as focus group discussions and a survey to determine civil
     servants’ perception about pay and human resource functions; 4) a computer model that simulates the impact
     of potential changes to pay and employment, customized to Myanmar’s circumstances; and 5) a review of other
     publications, such as analyses by development partners and media reports.

     12.	      The foundation for the Myanmar compensation review is an analytical framework that the
     World Bank uses in countries around the world. Although discussions of compensation often focus
     narrowly on base salary, total compensation includes numerous components in addition to base salary, such
     as allowances, benefits, and intangible factors. It is important to consider all of these components in order to
     have the best possible understanding of total compensation. In Myanmar, as elsewhere, some components are
     provided in monetary form (such as its regional allowance for hardship areas), and others are provided in kind
     (e.g., free or subsidized housing for some Myanmar civil servants). Benefits that are often found in the public
     sector include annual leave and sick leave. Some compensation is provided now, while some is expected in the
     future (notably, pensions). Additionally, intangible factors—those that are not money, goods, or services—can
     also add to the attractiveness of a government job in Myanmar. These include the prestige of being a civil
     servant and job security, among others. (The analytical framework does not address informal or illicit income,
     nor does this review.)

     Affordability of Myanmar’s current wage
     13.	     Although the size of the wage bill is not an immediate concern, there are growing fiscal
     vulnerabilities from external shocks that call for closer attention to the overall growth in the public-
     sector wage bill. The size of the public sector wage bill in Myanmar is comparatively low in international
     terms, at 3.5 percent of gross domestic product in fiscal year (FY) 2015/2016. This finding, however, should
     be interpreted cautiously, as international wage bill comparisons are fraught with difficulties.

     14.	     The size of the wage bill, however, has grown significantly in recent years. Starting from a
     low level in FY 2011/2012, the wage bill jumped significantly from FY 2014/2015 to FY 2015/2016, due
     to increases in base salaries and other monetary earnings. Therefore, this finding reinforces the importance
     of restraining excessive growth of the wage bill to meet the fiscal targets identified from the Government’s
     medium-term fiscal framework. This report concludes that, in order to manage the wage bill, better systems
     for forecasting the wage bill expenditures need to be developed that take into account the three trade-offs: 1)
     higher pay versus more staff, 2) across the board pay increases versus target increases, and 3) wage expenditures
     versus other expenditures. The wage bill forecasting tool is one such instrument.

     Myanmar’s current civil service compensation system
     15.	   The main monetary components of Myanmar’s civil service compensation are base salary
     and the regional allowance for hardship areas. These are, for the most part, clearly regulated, although the


12
criteria for classifying townships as hardship areas have not been published. Total monetary earnings increase
in a clear, orderly manner as civil servants move from lower positions or pay grades up the scale—a positive
feature that some developing countries fail to achieve. The base salary scale provides minimal pay progression
within a given grade and, because the increment is set as a nominal kyat amount (rather than a standard
percentage, which is the more usual practice), its relative importance declines as one rises in grade. For almost
all civil servants, these monetary earnings are de facto exempt from income tax.

16.	     Myanmar officials frequently expressed the belief that in-kind allowances vary substantially
across departments and perceived this as unfair. The senior management of each government department
has the authority to make its own decisions, and practices differ substantially. Most allowances are awarded
to gazetted posts, and the value typically increases as civil servants rise in grade. It is possible that the policy
is formalized in written regulations or policies prepared by each department. However, officials interviewed
for this review had never seen such documents and stated that employees simply know the practices in their
own department (but not elsewhere). In response to these concerns, the review team requested and analyzed
information on four in-kind allowance entitlements (housing, work vehicles, fuel allocation, and commuter
transportation) from a sample of six ministries and UCSB (39 departments in total).

17.	     Intangible factors also play a role in Myanmar’s civil service compensation. These are, by their
nature, difficult to quantify. However, both interviews and focus group discussions confirmed that civil service
jobs continue to be valued for their stability and prestige.

18.	     Rates for some operational expenses have become outdated. Operational expenses are, of course,
not part of formal compensation. But, if they are not properly managed, they may affect compensation and
civil servants’ ability to do their jobs effectively. Myanmar has a number of expenses rates and regulations
that are out of date or require re-evaluation to ensure they are effective. For example, regulations and rates
for reimbursement of travel expenses for field visits (such as by health-care workers to patients’ homes or to
outlying clinics) are of particular concern, since these can limit the delivery of critically important services to
the population. To the Government of Myanmar’s credit, it has begun revising some of these rates.

Competitiveness and adequacy of Myanmar’s civil service
19.	     This report systematically analyzes competitiveness issues in Myanmar (within certain
constraints) via an array of methods. The World Bank analyzed the 2015 Myanmar Poverty and Living
Conditions Survey (MPLCS) to provide a basis for putting civil service earnings into context. It also evaluated
nationally representative household surveys (pending at the time of writing this report) and administrative data
regularly collected by the Government of Myanmar (or submitted specifically for this review), pulled contextual
analysis from prior studies and publicly-available information, and conducted early-stage qualitative research via
interviews, a survey of civil servants, and focus group discussions with civil servants.

20.	     The World Bank and Myanmar review team’s analysis of whether civil service compensation
is adequate, given living conditions in Myanmar, shows that civil-service base salaries are not extreme
outliers relative to prevailing conditions in the country. For the gazetted grades, base salaries cover between
72 percent (staff officer level) and 138 percent (director general level) of average household consumption
expenditures, as estimated from the 2015 MPLCS. As expected, the base salaries cover a lower percentage in
higher-cost urban settings and a higher percentage in rural ones. For non-gazetted grades, base salaries cover
between 34 percent (lowest grade) and 59 percent (police lieutenant grade) of estimated average household
consumption expenditures.




                                                                                                                   13
     Comparison of Myanmar’s civil service compensation to “real world”
     alternatives
     21.	     The team’s ability to assess competitiveness was limited by the fact that Myanmar’s 2015 labor
     force survey (LFS) data had not been released at the time of writing. Analyzing LFS data is presently
     the most appropriate method for comparing earnings and working conditions across sectors of the economy
     in Myanmar. In the absence of LFS data, the team used other sources to place the civil service in the broader
     context of Myanmar’s labor market and economy. The guiding questions explored were what the labor market
     looks like, what work opportunities exist, and how workers outside the civil service are treated. More detailed
     comparison of civil service compensation with the rest of the labor market will have to wait until the LFS data
     are released.

     22.	     Myanmar’s labor market is dominated by informal employment, where the vast majority of
     workers do not receive benefits. The informal sector encompasses 71 percent of workers, with more than 50
     percent of the labor force employed in the agriculture sector. Many workers face tenuous labor conditions. At
     present, only public sector workers—less than 5 percent of the population—receive pension benefits. Workers
     in the formal private sector are covered by a contributory social security scheme. For civil servants, Civil Service
     Rules 2014 stipulates various types of leave for illness, maternity/paternity, disability, and other conditions.
     Medical care appears to be provided to civil servants in some (but not all) government bodies and certain
     geographic locations.

     23.	     The lowest civil service grade earns substantially more than a minimum wage worker.
     Myanmar’s first-ever minimum wage took effect on 1 September 2015, after lengthy negotiations. The official
     rate of MMK 3,600 per eight-hour day applies to all sectors, but not to businesses that employ fewer than 15
     workers. Many workers continue to earn less than MMK 3,600 per day or have unstable incomes. In contrast, the
     lowest civil service grade earns MMK 120,000 per month (FY 2015/2016), substantially more than minimum
     wage workers (estimated at MMK 77,400 per month). This finding supports the observation that lower-level (or
     lower-educated) workers are often better off in the public sector. Since 13.9 percent of union-level civil service
     jobs are in the lowest grade, this group of beneficiaries is substantial.

     Ability of Myanmar’s civil service attract and retain the skills it needs
     24.	    Despite drawbacks, it seems that civil service jobs are currently considered attractive by many
     people. Certainly, this may change over the medium-to-long term, as Myanmar’s economy develops and work
     opportunities in the formal private sector become more plentiful and appealing. Of course, compensation is
     only one of many considerations influencing these dynamics: job satisfaction, employment stability, dignity,
     opportunities outside of government, and other factors also play important roles.

     25.	     Routine administrative data from the Myanmar civil service revealed that voluntary resignations
     are low, with some differences across departments. Retirement is by far the major reason for individuals
     to leave the civil service. Discussions with several civil service managers also confirmed that departures are at a
     modest level. Not surprisingly, dynamics appear to vary by sector, department and grade.

     26.	    Despite challenges, survey and focus group respondents value their civil service status, and
     most would recommend a civil service career to others. Participants in the focus group discussions
     perceived substantial advantages to being a civil servant, while also sharing diverse views about the adequacy
     (or inadequacy) of their income and the factors that motivate individuals to join or leave the civil service. Of
     the respondents to the written survey, 88 percent had not made serious efforts to find work elsewhere (and


14
therefore leave the civil service) in the past 12 months, and 73 percent would recommend to other people that
they seek a job in the civil service.

Fairness and transparency in Myanmar’s civil service compensation
27.	    The main monetary components of compensation are clearly regulated, for the most part, but
offer only small within-grade pay rises. Progression up the base salary scale is orderly, with earnings in each
higher grade always greater than in the adjacent lower grade. The minimal within-grade pay progression could,
however, be seen as unfair or noncompetitive, in broad terms. The modest size of increments to base salary
means that individuals see little growth in earnings over time, unless they win a promotion to a higher grade
position or the entire base salary scale is adjusted. Furthermore, higher grade jobs (and workers with longer
job experience) get a smaller relative increase in pay, since the kyat-denominated increment represents a smaller
percentage of base salary. While people generally welcome any increase in their earnings, the prospect of only
minimal pay rises over a 10-year horizon may weaken motivation.

28.	     Nonmonetary allowances are far more variable and discretionary than monetary compensation.
In some countries, in-kind allowances may be de facto compensation (in part and under certain circumstances),
as opposed to serving purely to enable work activities. The dividing line can be difficult to establish, but
the issue is pertinent to Myanmar. (The team was not aware of any centralized documentation about these
department-level decisions.) As a result, it is not easy to know the full compensation package that is provided
to different positions and to individuals working in different departments, whether in similar or different jobs.

29.	     The Myanmar civil-service housing allowance illustrates the difficulty of understanding who
benefits from in-kind allowances and by how much. In addition to an existing stock of government-owned
or subsidized housing, some government bodies are building new, “affordable” housing, with government staff
among the priority beneficiaries. The benefit to those who are able to purchase or rent such a unit is substantial,
and large numbers of people apply for the relatively small number of opportunities. The value to individuals,
however, is difficult to estimate because it would require assessing local supply and market prices for similar
units, among other factors.

30.	     The classification of jobs into grades deserves attention. Although Myanmar appears to have
a basic system of job families, the rationale underlying the grading structure is not evident. In the course of
this review, it was not entirely clear how it is used in practice or, in particular, which criteria and processes
determine how jobs are assigned to specific grades. While robust job descriptions are typically an important
part of this process in other countries, the use and coverage of job descriptions in the Myanmar civil service
vary significantly. Indeed, the variety of job titles that are grouped together in the same grade suggest a very
wide spread in skill and responsibility levels within a given grade.

31.	   Having a suitable grading structure is especially important to the health and education sectors,
which deliver vital services to the public. Due to the nature of professions in these sectors, an individual
may spend an entire, decades-long career in the same line of work. It is important to provide professional
advancement opportunities and pay rises that recognize the value of these career paths.

32.	    The case of teachers in Myanmar’s basic education system illustrates this point. Myanmar’s
teachers must (and do) move to teaching higher grades to see any substantial increase in earnings, which
concentrates the most experienced teachers in high schools and the least experienced in primary schools. It is
not unusual in other countries for teachers of higher grades to earn more than teachers at lower levels of the
education system, but all can see substantial growth in earnings over the course of their careers in any level.
However, this is not the case in Myanmar.

                                                                                                                  15
     Key human resource functions and management of Myanmar’s civil
     servants
     33.	     Strengthening human resource functions and adhering to the principle of merit within the
     civil service have a discernible positive impact on public sector performance. The review examined
     these key human-resource functions: human resource planning, recruitment and selection, deployment and
     retention, promotion, and performance appraisal.

     34.	     Currently, overall human resource planning is governed by a two-thirds policy, which allows
     only two-thirds of the officially sanctioned posts to be filled. Human resource planning is managed at
     the department level in each ministry, and there is no ministry-wide strategic unit managing this function. The
     administrative units in ministries are mostly in charge of maintaining human resource records and do not provide
     strategic analysis or input into human resource planning. While the two-thirds policy might have been helpful
     to manage fiscal constraints, a more flexible approach to work planning should be considered. Human resource
     planning in Myanmar follows a bottom-up approach to determine staffing needs. Units submit their requests
     for staff needs to their head of department, based on their roles, work functions, and work responsibilities,
     and according to their organizational structures. The Government of Myanmar currently reports, but does not
     analyze, employee turnover data.

     35.	     The available recruitment data suggest that there is excessive demand for government
     employment. The number of applicants significantly exceeds the number of available positions. This finding
     is reinforced by the low turnover rates and suggests that—for now—the Government of Myanmar is able to
     attract and (in particular) retain staff. Recruitment is important because other human resource policies, such as
     training and deployment of civil servants, are dependent on the effectiveness of this process. In Myanmar, the
     open competition examination is a fundamental and major channel for selecting civil servants.

     36.	     The open competition examination system is intended to ensure the recruitment of talented
     and qualified young people. The letter of the law does not discriminate, positively or negatively, among full
     citizens on the basis of sex or origin. The Myanmar civil service is a career system, which focuses on initial entry
     to the civil service, with established career tracks.

     37.	    The process for recruitment and selection managed by UCSB is well regulated by law, yet
     challenges remain. There is a perception, according to civil servants, that the system is not recruiting the
     best people. The focus group discussions revealed a perception that there is too strong a focus on the written
     examinations and that the questions asked on the three themes—the Myanmar language, the English language,
     and general knowledge—are so broad that it is difficult to discern specific job competencies.

     38.	     Neither the Public Service Personnel Act nor the Civil Service Rules and Regulations, 2014,
     provide much detail on the policy for deployment of civil servants. It is difficult for ministries to deploy
     the best person for the job. Among other things, this would involve a much stronger focus on matching the
     individual job requirements with the competencies of the person to be deployed.

     39.	     There is a perception among civil servants that the posting and deployment of staff is not
     always carried out in a fair and transparent manner. While 49.7 percent of the survey respondents said that
     the posting and deployment of staff is carried out in a fair and transparent manner, 39.7 percent said that it is
     not fair and transparent, and that bias is often a significant factor.




16
40.	     The challenges in deployment do not seem to affect overall retention in the civil service; however,
retention of staff in poor and remote areas is the key binding constraint, even with the regional hardship
allowance. As evidenced in the extremely low turnover rates in the civil service, there is no overall problem
of retaining civil servants once they are recruited into the system. There is, however, a profound challenge of
keeping staff in poor and remote areas, which has a detrimental impact on service delivery. To address this, the
Government of Myanmar introduced the regional hardship allowance—a monetary benefit for civil servants
deployed to poor and remote areas. However, it is not clear that the allowance has produced the desired outcome.

41.	     There is also a perception that political consideration influences the promotion process of
civil servants. In the 2016 UNDP civil service perceptions survey, 26 percent of gazetted officers and 34
percent of the non-gazetted officers of 2010 civil service personnel who participated in the survey stated
that political considerations influence the promotion process of civil servants. As a consequence, 55 percent
of gazetted officers and 25 percent of non-gazetted officers disagreed that the most qualified and competent
person is promoted.

42.	     Performance appraisals of civil servants are carried out by ministries and departments for
purposes of staff promotion. The Myanmar system puts more weight on traits than on performance,
emphasizing personal characteristics (such as responsibility, competency, confidentiality, etc.), which are
presumably related to job performance. One problem with trait rating is that the traits themselves are difficult
to define and may be subject to varying, subjective interpretation by managers. The broader issue in the analysis
of the performance appraisal systems is to make the tool more relevant in the civil service. This would imply a
stronger use of performance appraisals in the promotion process. But first, managers need to be trained how
to perform appraisals and how to use them to enhance the skills and competencies of their employees—and
managers need to be allotted adequate time to conduct them.

Management of the teacher workforce
43.	     Teachers are the single largest category of civil servants, making up more than one-third of
the total workforce employed by the Union Government and accounting for nearly one-half of the
union budget’s wage bill. Also, retired teachers make up one-third of all union government pensioners.
Teachers’ salaries account for approximately 78 percent of the recurrent resources allocated to the basic
education sector. Understanding the pay and compensation of the civil service in Myanmar can be enhanced by
closely examining policies covering the more than 340,000 individuals who work as teachers.

44.	     Over the last four years, Myanmar has introduced sweeping reforms to teacher policies, with
more being planned. The most important of these changes relate to the compensation of staff in the form
of wages and allowances, and the introduction of a new practice of hiring a very large number of unqualified
teachers (who lack teaching qualifications) as contract teachers. With the new contract teachers, the Ministry
of Education has (in just three years) dramatically changed the composition of its teaching workforce in some
very profound and, for Myanmar, uncharted ways. Firstly, the Ministry introduced the notion of employing
uncertified teachers. Secondly, it decided to hire all these new teachers as “contract teachers”—introducing
a new category of staff (daily wage teachers) within the school system. Thirdly, it allowed state and regional
officers (of the Ministry of Education) a greater say in the hiring process.

45.	     Gender differences for teachers and administrative staff are pronounced. Women make up
the (large) majority of teaching staff. However, women only make up 61 percent of head teachers, which is a
significantly lower representation of females than in most other school positions. Recent reforms have tried to
address the gender imbalance of teachers by raising salaries for all teachers and by lowering the selection criteria
for men. In administrative positions at the township level, assistant township education officers are nearly all male.

                                                                                                                         17
     46.	     Entry requirements into the teaching profession are low, compared to other regionally high
     performing countries, and are as yet not equitable. Currently the minimum requirement for entry into
     a teacher preparation program is high school graduation. Qualifications differ across all educational level.
     Currently, the minimum requirement for applying to be a high school teacher or an educational administrator
     is a bachelor’s degree in education.

     47.	      The process of hiring civil servant teachers is centralized, while the hiring of daily wage
     teachers is more decentralized. Every year, teacher vacancies are reported by all the township education
     officers, based on a request by the Department of Basic Education. Candidates from the Education Colleges
     are identified through an application process for those who earn certificates. But with daily wage teachers,
     an alternative process is used that has more involvement at the township level. These teachers lack teaching
     certificates, have differingqualifications (ranging from master’s or bachelor’s degrees to high school certificates),
     receive about a month’s worth of training, and are employed at a lower salary scale without benefits. After a
     period of about one year teaching, they are eligible to become permanent staff.

     48.	      Deployment and retention issues in education highlight the need for better planning, use of
     data, and provision of appropriate incentives. While the Ministry of Education collects data on teacher
     supply and demand, to date it has not been used to inform the design of a responsive teacher-deployment
     system. Current planning is inadequate to ensure a smooth supply of teachers to meet rapidly growing demand,
     as it is only cursorily linked to pre-service teacher education intakes. Retention at a system level is quite good,
     with less than 2 percent attrition. But, as is the case in many countries, there is difficulty in retaining teachers
     in hard-to-staff schools and certain specializations. While a hardship allowance exists, challenges of housing,
     transportation, and communication are acknowledged difficulties in attracting and retaining teachers in remote
     locations.

     49.	     Teachers’ salaries have increased substantially over the last three years; however, questions
     remain as to how salaries affect teacher motivation, placement, career development, and performance.
     When taking both salaries and allowances into account, base salaries of civil servant teachers have approximately
     doubled between FY 2012/2013 and FY 2015/2016. The salaries of daily wage teachers, on the other hand, are
     close to minimum wage level.

     50.	     Professional development for teachers in Myanmar, delivered through the in-service teacher
     training programs offered by Education Colleges and Institutes of Education, is inconsistent and has
     not been effectively institutionalized. The Department of Education Planning and Training is reportedly
     understaffed and therefore unable to efficiently develop and organize regular in-service trainings. When training
     is provided, it is offered on an ad hoc basis and is expected to “cascade” outwards and downwards to other
     teachers. No data exists on whether these in-service trainings are equitably delivered, need-based, or standards
     based, or whether teachers are given any incentive to participate in professional development.

     51.	     The teacher progression and promotion system is one of the most critical areas of reform. The
     promotion system also interferes with staffing needs. Due to the ascending salary system, once teachers
     start their careers (almost always at the primary level), they immediately look for a better position in a higher
     level school. Teachers have an immediate incentive to apply for promotion due to pay gaps in the school-
     level specializations (primary, middle, and high schools). This system is seen as detrimental in many respects:
     teachers transfer from schools frequently as they are promoted to different levels, and the best teachers tend
     not to remain in primary schools—arguably the level where the best teachers should be staffed. To address this
     issue, the new Government of Myanmar is proposing to restructure the progression and promotion systems to
     offer career tracks within all school levels and new incentives for teachers to specialize in one of the three levels.
     The design of this system is critical to ensure high quality experienced teachers remain at the primary level.


18
Policy recommendations for the way forward
52.	    This report presents as comprehensive a picture as possible of the Myanmar civil-service
pay and compensation, and human resource systems—looking closely at the education system as
an example—and their strengths and challenges. Based on the diagnostic assessment in each chapter, the
report details policy and reform options for the Government of Myanmar to consider. The recommendations,
consolidated here, tailor good practice in civil service management to the Myanmar context, and the country’s
current problems and capacity constraints, from a forward-looking perspective.

53.	     RECOMMENDATION 1: The wage-bill forecasting model could be integrated into the
Government of Myanmar’s and the World Bank’s joint work on strengthening the medium term
fiscal framework and human resource planning. The wage bill forecasting model provides a more robust
methodology than the existing practice of estimating future wage expenditures, which relies on simple percentage
increases to the overall wage bill. Importantly, the wage-bill forecasting model can be used to strengthen human
resource planning, give flexibility to the two-thirds policy by providing an accurate projection of the budgetary
impact, and provide evidence to help answer such concerns as 1) whether current staffing reflects the priorities
and performance targets of the Government, 2) what the greatest staffing priorities are going forward, and 3)
how the Government can maximize the developmental impact of human resources.

54.	    RECOMMENDATION 2: Department-level wage bill reports could be consolidated into
one central database, which could be located at MOPF (for budget control) and a relevant ministry/
department (for human resource planning). For regular reporting of data to occur, a uniform template will
be necessary to ensure consistency.

55.	    RECOMMENDATION 3: The Government of Myanmar could also consider introducing an
electronic centralized payroll system. A centralized system (with unique identifiers for each civil servant)
would capture the complete payroll data and have controls to minimize the possibility of errors. The benefits
would also include efficiency gains by automating manual tasks, improving capacity to conduct payroll audits,
and increasing ability to conduct wage bill analysis, as well as wage bill and pension forecasts.

56.	    RECOMMENDATION 4: Analyze Myanmar’s labor force survey (LFS) for insights into
the adequacy and competitiveness of civil service compensation, and monitor developments over
time. In other countries, large-scale survey data are commonly used to assess the competitiveness and
adequacy of government compensation. Once the 2015 LFS data is released, the Government of Myanmar
could conduct this specialized analysis, with international guidance as needed.

57.	    RECOMMENDATION 5: Review the rationale for in-kind allowances to establish clarity
about objectives and parameters. To the extent that these allowances may supplement earnings
(rather than serving only direct operational needs), they constitute a highly variable element in the
compensation packages for these posts. Since the leadership of each department decides the amounts that
are awarded, as well as the posts or individuals that receive the allowance, the system is also highly discretionary.
The review would produce guidelines that stipulate the justification, criteria, and the kyat amounts for any
allowances that continue to be associated with all posts.2



2  Such a review would examine fundamental issues such as 1) the purpose for each in-kind allowance; 2) the rationale for providing
an item “in kind,” rather than in monetary form; 3) the assignment of in-kind allowances to a post/individual or to the operational
resources available to the relevant unit; 4) the degree of variation in allowances across departments or units; 5) the cost-effectiveness of
existing arrangements and potential for more efficient options; and 6) the financial implications of any changes.


                                                                                                                                           19
     58.	     RECOMMENDATION 6a: The Government of Myanmar should begin systematically
     monitoring its ability to recruit the skills that it needs and to retain them where it needs them,
     especially in remote or hardship areas. The Government of Myanmar does not currently conduct such
     targeted monitoring, although it routinely collects data that could be used for this purpose. Monitoring is
     especially pertinent to the Government’s concerns about attracting and retaining certain categories of staff in
     hardship areas.

     59.	     6b: The Government of Myanmar will need objective evidence to assess whether various
     measures aimed at retention in hardship areas are having an effect or not. The key is to understand
     how civil servants would respond to alternative incentives associated with working in remote areas. While the
     regional allowance is one incentive, the focus group discussions also highlighted that other mechanisms—such
     as direct recruitment from the remote areas (e.g., especially for auxiliary health-care staff), accelerated career
     opportunities, subsidized housing, and special transportation facilities (perhaps bundled together) —could be
     successful in attracting civil servants to remote areas and keeping them deployed there.

     60.	      RECOMMENDATION 7: A small set of focused indicators would help the Government of
     Myanmar monitor and refine its compensation and human resource management policies. Indicators
     for staff retention include tracking 1) the percentage of vacant positions by type, geographic location, etc.; 2) the
     average time that employees remain in a job (by position) or geographic location (such as a hardship area); and the
     turnover rate by reason. Indicators of success in attracting workers with requisite skills include capturing not only
     the number of people who apply for each advertised job opening but the number of qualified applicants.

     61.	     RECOMMENDATION 8: Review and update rates for the operational expenses that enable
     civil servants in Myanmar to do their jobs. Rates that are inappropriate have clear negative impacts.
     Unreasonably low rates waste the Government’s human resources, since civil servants are hindered from doing
     their work effectively. Rates that are too high also waste budgetary funds and reduce the effectiveness of civil
     servants’ work. Furthermore, when rates for operational expenses are inadequate, development partners, who
     fund projects, may introduce their own allowances in an uncoordinated fashion, thereby further distorting work
     incentives. It is thus important to set rates that are appropriate and to ensure that they are updated over time,
     when necessary, and follow a few guiding principles.

     62.	    RECOMMENDATION 9: In the next round of LFS, the Government of Myanmar could
     usefully include more detailed occupation codes, to enable more nuanced comparisons. More detailed
     occupation codes will make it possible to do more detailed comparisons. This will be especially important as the
     economy and the labor market develop over time, and certain skills become more highly sought after (therefore
     potentially making it harder for the Government to attract and retain qualified people.)

     63.	     RECOMMENDATION 10: Conduct a focused review of the criteria for each level of the
     grading structure and whether jobs are properly allocated to grades. There are questions about how
     effective Myanmar’s current grading structure is in 1) ensuring that jobs with a roughly equivalent assessed value
     are grouped into the same grade, and 2) facilitating a career path, especially for service delivery professionals in
     education and health.

     64.	     RECOMMENDATION 11: It would be prudent if Myanmar does not undertake a jobs-based
     survey for the foreseeable future, but defers until the formal labor market is more developed. Such
     surveys are expensive and typically examine only a relatively small number of jobs. They are best suited for
     economies with a well-developed formal labor market, where the civil service is just one among many appealing
     career paths. Given the Government’s current position as a leading employer in the formal labor market and the
     lack of evidence of a “brain drain” of skills to other employers, this type of exercise should be deferred.


20
65.	     RECOMMENDATION 12: The Government of Myanmar could consider establishing a
human-resource management unit for each ministry. The functions of such a unit could be expanded
to include human resource planning, development, recruitment and selection, training and development, and
management—with a particular focus on deployment and retention in underserved areas.

66.	    RECOMMENDATION 13: Use job analysis as a tool for strengthening human-resources
management functions, such as recruitment and promotion. Job analysis involves three specific aspects:
development of job descriptions (comprising a statement of purpose and specific responsibilities, activities,
and references), a person specification (consisting of a statement of skills, abilities, knowledge and minimum
education level required to perform the job), and performance indicators (listing quantifiable outputs from the
job performance).

67.	     RECOMMENDATION 14: Consider making the policy on deployment more explicit and
transparent. Based on the analysis above, the Government of Myanmar could consider developing a more
specific policy on deployment.

68.	    RECOMMENDATION 15: The Government of Myanmar might consider strengthening the
format, implementation, and monitoring of performance appraisals. This effort would be a synergetic,
stronger use of job analysis, where the performance appraisal methods are job-related. In this context, the
recommended job analyses must be conducted before selecting a performance appraisal system or method.
Managers could be trained in conducting performance appraisals. In essence, this would entail making the
performance appraisal matter, by linking it more productively to promotion and rewards, and possibly demotion.

69.	     RECOMMENDATION 16: For recruitment and selection of teachers, key issues are
managing the rapid expansion of teacher numbers and properly hiring both Education College
candidates and daily wage teachers. The relatively new process of selecting and credentialing daily wage
teachers, in particular, holds many challenges. This wave will shape the teacher workforce for many years, and
poor selection or lower standards can have serious implications. In addition to defining a process that recruits
and selects high quality candidates, a support system is essential for them in their initial years. The new teacher
mentoring system will play a critical role.

70.	      RECOMMENDATION 17: In the deployment of teachers, data on teacher supply and
demand has been collected, but to date it has not been used to inform the design of a responsive
teacher-deployment system. In particular, as the number of teachers expands rapidly and attempts are made
to fill staffing gaps, reliable identification of schools (and locations) where teachers are needed is essential.
However, a significant deployment challenge remains: many of the young, inexperienced teachers tend to be
placed in the more remote schools.

71.	      RECOMMENDATION 18: Regarding the progression and promotion of teachers, the key
issues are minimizing the constant movement of teachers within the school system and keeping high
quality, experienced teachers in primary schools. The existing promotion system interferes with staffing
needs. The significant pay-scale differences between primary (lowest pay), middle, and high school (greatest
pay) levels encourage teachers to apply for promotion out of primary schools as quickly as possible. The way
forward is to develop career tracks (specialization) and a promotion system within school levels, and to equalize
salary structures across all levels. This involves creating cadres and separating the primary school teachers from
the middle and secondary schools. It also involves changing the recruitment criteria for middle and secondary
schools, possibly turning to competitive recruitment of only university graduates (at a minimum), with no
weighting given to the primary school experience.


                                                                                                                  21
     72.	    RECOMMENDATION 19: In human resource planning for teachers, being able to forecast
     teacher supply and demand is critical and should be data-driven. The Ministry of Education does gather
     data on teacher deployment. More robust forecasting and planning systems will be important elements in
     smooth navigation of the changing education landscape.

     73.	     RECOMMENDATION 20: The new teacher competency standards will be a core policy that
     underpins all aspects of teacher learning and development, as well as performance management and
     appraisal. Often teacher standards are defined, but are then not linked to pre-service and in-service training,
     or to teacher progression and promotion. It will be critical to explicitly link the teacher standards throughout
     the system and have them tied to meaningful results.

     74.	    RECOMMENDATION 21: In-service professional development will also play a critical role
     in supporting teachers. Myanmar’s professional development program for teachers is fractured, however,
     and needs to be strengthened to provide consistent, coherent professional development opportunities, offered
     though school clusters and traditional training.




22
CHAPTER 1
INTRODUCTION
1.	      An efficient and high-performing civil service, with the compensation and human resource
management system to attract and retain qualified personnel, will be crucial to Myanmar’s strategic
attention to administrative performance in particular and to the country’s development trajectory
more broadly. Public administration performance reform is inevitably a difficult reform agenda in developing
countries,3 but since 2010 the Government of Myanmar has demonstrated sustained commitment to initiating
the process of modernizing and enhancing the productivity of its public sector. This change is a building block
in Myanmar’s triple transition toward democratic governance, a market-oriented economy, and peace. There are
several factors affecting the overall performance of the Myanmar civil service—transparency and accountability
throughout the public sector, including in revenue collection; the management of public expenditure; and
public policy making—but the focus of this report is pay, compensation, and human resource management.4
These factors, however, serve as a context for this analysis - for example, by determining what the evolution of
a more vibrant private sector in Myanmar means for public sector pay.

2.	       As Myanmar is modernizing its public-sector institutions and policies, it will have to start
with “first things first.”5 This means starting with the key constraints and problems that Myanmar
is facing. Rather than focus on any specific institutional blue print (e.g., how an independent Public Service
Commission should be structured), the review required a closer look at the specific functions of the civil
service system (e.g., how the Government of Myanmar rewards its employees and how it recruits and promotes
staff). Understanding the specific problems also required a sound diagnostic of the Government’s systems for
rewarding and managing its civil service. For example, if deployment of civil servants into poor and remote
areas is impeding effective service delivery, policy makers need to know if a hardship allowance is working or if
other drivers of retention, such as recruiting from the hardship areas, are more effective.

3.	       Myanmar has demonstrated a remarkable ability to control the wage bill and the size of the
public sector up to now, yet a series of pay adjustments have been introduced since 2010. In the past,
the strategy employed to curtail public spending was to fix wages in nominal terms over long periods of
time. During the period 1972-2010, nominal wages6 were only increased five times, coinciding with changes in
government (in 1972, 1989, 1993, 2000, and 2006). In other words, this implied a freeze in nominal terms of
salaries for these periods: 1972-88, 1989-93, 1993-2000, 2000-2006, and 2006-2010. This policy came to an end
in 2011; in subsequent years, pay increases were provided across the board, although increases for fiscal year
(FY) 2015/2016 have decompressed salaries.7 These pay adjustments have been undertaken with only limited
planning of the fiscal scenarios and link to the medium-term fiscal framework (MTFF).

3  The Independent Evaluation Group’s 2007 assessment of the World Bank’s public sector portfolio was particularly critical of the
track record in civil service reform, pointing to a serious lack of robust analytical work in the area.
4  For a broader analysis of the drivers of public sector performance, see S. Mohib et al., 2016, “Participating in Change: Promoting
Public Sector Accountability to All.”
5  M. Grindle, 2004, “Good Enough Governance: Poverty Reduction and Reform in Developing Countries”; and A. Schick, 1998,
“Why Most Developing Countries Should Not Try New Zealand Reforms”, 123–31.
6  In other words, not adjusted for inflation.
7  Pay compression is usually defined as the differential between the highest and lowest earners in an organization. It is the view of the
authors of this report that “compression ratios” remain a blunt tool. Despite claims to the contrary, there is no empirically supported
“right” ratio. But, one can argue that extreme compression or decompression indicate potential concerns. A more complicated but
meaningful approach is to focus on pay differentials between adjacent salary grades, as opposed to a compression ratio for the entire
salary structure.


                                                                                                                                         23
     4.	      In this context, the Ministry of Planning and Finance (MOPF) requested technical support
     from the World Bank to undertake a review of pay, compensation, and human resource management
     (HRM) in 2015. Specifically, the Government of Myanmar asked for assistance in establishing a robust
     analytical and empirical basis to inform compensation and HRM reforms. MOPF indicated a particular interest
     in the affordability, transparency, competitiveness, and fairness of compensation. In January 2016, the Union
     Cabinet established the Pay, Compensation, and Human Resource Review Implementation Inter-ministerial
     Committee to oversee the review (Ministry of Finance, Union Minister Office, Notification No. 12/2016, 25
     January 2016). The Committee’s eight members include the Ministry of Finance; Ministry of Planning and
     Economic Development; Union Civil Service Board (UCSB); Ministry of Energy; Ministry of Health; Ministry
     of Education; (former) Ministry of Labour, Employment, and Social Affairs; and Ministry of Home Affairs
     (General Administration Department).

     5.	      In parallel, the Ministry of Education requested assistance on a study to identify “the
     impediments to effective teaching,” many of which are thought to be related to the pay and
     employment regime. Drilling down into the education sector makes sense for several reasons. The education
     sector constitutes nearly 40 percent of the total work force employed by the Union Government8 and makes up
     nearly one-half of the union budget’s wage bill. Retired teachers make up one-third of all union government
     pensioners. This study enabled a close look at the link between pay and compensation and service delivery. As
     with the broader public sector performance, pay and employment are obviously only two of several factors
     affecting educational outcomes in Myanmar.

     6.	     Against this backdrop, this report seeks to answer specific questions for each element of the
     review:

     The focus on pay and compensation (chapters 3, 4, and 5) has four key elements:
            1)	 Affordability (fiscal plan and human resources): How affordable is Myanmar’s wage bill?
            2)	 Transparency: Is civil service compensation clear and easy to understand?
            3)	 Fairness (equity): Do equal jobs receive equal compensation?
            4)	 Competitiveness and adequacy: How does civil service compensation compare to alternatives? Is it
                 sufficient for a reasonable standard of living?

     The focus on human resource reforms (chapter 6) addresses these key functions:
            •	 How does the government undertake work force planning and establishment control?
            •	 How are civil servants recruited, selected, and promoted?
            •	 How are civil servants deployed, and what are the challenges in retaining public servants in the
                 work force and in remote and poor areas?
            •	 How does the government manage its staff for better performance through staff appraisals?

     The focus on employment and pay in the education sector (chapter 7) examines these issues:
            •	 How attractive is the teaching profession in Myanmar, and who enters the profession?
            •	 How are teachers recruited, selected, promoted, retained, and deployed?
            •	 How are teachers supervised and managed?
            •	 How does the government undertake teacher work force planning, and what are the projected
                 needs of teachers?
            •	 How does the system for continuous professional development of teachers function, and what
                 support and opportunities exist for teachers?


     8  Myanmar formally calls itself the Republic of the Union of Myanmar; hence, “Union” refers to the government proper, while
     “union” is comparable to “central government level.”


24
7.	      Based on the specific problems and findings identified by the review, recommendations for
the Government of Myanmar are proposed in each chapter, based on a distinction between short,
medium, and long-term options. It is the prerogative of the Government to decide on the specific policy
actions.

8.	      While the review recognized that pensions will be a critical component in analyzing total
compensation and, in particular, future fiscal liabilities, it has not been possible to factor pensions into
the quantitative analysis. The Government of Myanmar is considering reforms to its civil service pension
scheme. The design and operation of pension systems are distinct, highly specialized areas that lie beyond
the scope of this study. A deeper examination of the pension liabilities is also difficult because Myanmar’s
civil servants do not have individual identification numbers via which to record crucial information, such
as date of birth and date of entry into the civil service. It would involve a considerable effort to clean and
systematize the pension data in order to inform the wage bill forecasting model, and the potential liabilities that
might be incurred by changes to the civil-service compensation system. The Government of Myanmar and the
World Bank are also providing technical assistance to the Pension Department of MOPF. Several policy notes
and training courses have been undertaken. A dialogue between the Government and the World Bank for a
substantial support package is ongoing.

9.	      The review also recognized that relations between central and local government levels
constitute a centerpiece in Myanmar’s efforts to redefine the organization of the public sector. This
will also have a profound bearing on key civil service functions, such as establishment control; work force
planning; and authority to recruit, select, deploy, and promote civil servants at various sub-national levels.
While there have been some efforts to delegate authority to the region and state levels to manage the Myanmar
civil service, it is still in essence a deconcentrated service, with functions remaining centralized at the union
level. Against this backdrop, the review did not explore in depth the relationship between central and local
government in terms of pay, compensation, and HRM. However, as this relationship evolves, a deeper analysis
of the implications for the civil service may be warranted.

10.	      The review addressed the Government of Myanmar’s ability to attract and retain public
servants and looked less at motivation. The review placed less emphasis on motivation for two key
reasons. First, it is very difficult to establish how motivation works across different categories of civil servants.
Second, the quality of compensation and HRM can serve as proxies for motivation. For example, it is fair to
assume that a compensation package that is perceived as competitive, transparent, and fair would motivate
the civil service work force. At the same time, motivation is not a guarantee of strong performance. A civil
servant can be motivated, but perform badly (and vice versa). An unfair or uncompetitive pay system can
be a source of dissatisfaction and thus affect performance, but the pay system is not the primary driver for
improving motivation: factors that provide satisfaction are. For example, recognizing achievement, rewarding
responsibility, offering opportunities to do meaningful work, and involving employees in decision making can
engender employees with a sense of importance to an organization. The review focused less on these issues,
which may be an area where more research is needed.

11.	     The approach of the review has been to build Myanmar’s ownership of the findings and
develop capacity, underpinned by rigorous analysis. The World Bank team was linked with a MOPF
task team to identify focal points in each of the ministries in the Pay, Compensation and Human Resource
Review Implementation Inter-Ministerial Committee. The World Bank team aimed to develop capacity in
the Government of Myanmar to take on new approaches to pay, work force planning, and HRM. Several
deliverables were produced in the process, such as training sessions and guidance notes on how to apply the
customized pay and work force modeling tool in the budgeting process and in preparations for the MTFF. This
helped build a mutual understanding between the Government of Myanmar and the World Bank team about


                                                                                                                    25
     the data required for the analysis and to strengthen the systems for pay, compensation, and HRM. Moreover,
     the Government has reviewed this report of the review in such detail that it will be approved at Union Cabinet
     level. It is the first diagnostic review of the Myanmar civil service.

     12.	     The report is structured to answer the questions posed by the Government of Myanmar
     in its request for the review, concerning affordability, transparency, equity and fairness of pay and
     compensation, HRM, and management of the teacher work force. Chapter 2 introduces the laws and
     bylaws that regulate the Myanmar civil service as well as its management structures. Chapter 3 examines the
     affordability of the wage bill through a review of public sector employment, the wage bill forecasting model, and
     payroll management. Chapter 4 analyzes the way Myanmar pays its civil servants by looking at the components
     of compensation (i.e., base pay, allowances, and benefits), guided by a standard World Bank framework.
     Following the analysis of these basic components, Chapter 5 uses them to analyze the competitiveness,
     transparency, and fairness of civil service compensation. Chapter 6 analyzes the functions of human resource
     planning, recruitment and selection, deployment and retention, promotion, and performance management in
     the Myanmar civil service. Chapter 7 takes a deeper look into the education sector and how the teacher work
     force functions and is managed. Chapter 8 summarizes the policy options that the Government of Myanmar
     might consider for the way forward.

     13.	     The report uses international English terminology. The technical terms in this report are regularly
     used in specialist discussions of civil service and public sector issues. As Myanmar increasingly engages in
     international communities of practice, such as the Association of Southeast Asian Nations (ASEAN) civil-
     service meetings and the Public Expenditure Management Network in Asia, it will be helpful to use this
     terminology. A glossary is available in annex 1.




26
CHAPTER 2
THE MYANMAR CIVIL SERVICE IN CONTEXT
14.	     This chapter briefly introduces the Myanmar civil service. It outlines the legal framework
regulating the civil service, looks at the relevant national structures governing the public service, and briefly
introduces the various civil service functions reviewed in detail in this report.9 Chapter 2 presents the formal
framework of the civil service, whereas the following chapters analyze implementation and actual practices.

15.	    Before exploring these specific questions, the universe of the public sector in Myanmar needs
to be defined. Figure 1 shows the overall framework and universe for defining public sector employment, and
how public sector employment is defined in Myanmar. The grey boxes in figure 1 are the focus of this report.
As the Myanmar public service is, in essence, a deconcentrated service, the distinction between the central and
sub-national levels is not highlighted in figure 1.

 Figure 1:        General framework of public employment and review coverage


                        TOTAL PUBLIC EMPLOYMENT                                    TOTAL PUBLIC EMPLOYMENT


          State-owned Economic               General Government                State-owned Economic      General Government
          Enterprise Employees                                                 Enterprise Employees           1,104,959


                                Total Civilian          Total Sun-national                                     Total Civilian Central
    Armed Forces                                                                         Armed Forces
                             Central Government           Government                                               Government

   Total Education                                                                                                   Education
                                 Education                  Education
        Employees                                                                                                     441,807
      Total Health                 Health                    Health                                                   Health
       Employees                                                                                                       82,141

                                   Police                     Police                                                   Police
       Total Police
                                                                                                                       72,025

                                 Civilian Central           Civilian Central                                           Civilian Central
                                  Government                 Government                                                 Government
                                    excluding                  excluding                                            excluding education,
                                education, health          education, health                                          health and police
                                   and police                 and police                                                   505,986

    Often known as          Permanent                 Permanent                                                Permanent
     "civil servants"       Employees                 Employees                                                Employees
          Daily paid                    Temporary                   Temporary                                                Temporary
          employees                     Employees                   Employees                                                Employees



Source: The World Bank and Myanmar’s Central Statistical Office (CSO), employment data 2015. Data on the police came from
budget forms 2C and 2D (FY 2015/2016).



9  This chapter does not discuss the Myanmar civil service from a historical perspective. For an excellent account of this, see D. Hook,
Tin Maung Than, and Kim N.B. Ninh, 2015, “Conceptualizing Public Sector Reform in Myanmar,” chap. 1.


                                                                                                                                           27
     16.	    The Public Service Personnel Act defines a public servant as any person serving as a permanent
     employee in a public sector organization. This includes both normal civil service personnel (see figure 1)
     and health and education personnel. The military and police are not covered by the Act.10

     Governing laws and regulations of the civil service
     17.	      There are four key pieces of legislation regulating the civil service in Myanmar: the Constitution
     (promulgated in 2008); the Law on the Union Civil Service Board (2010); the Public Service Personnel Act
     (2013); and Civil Service Rules and Regulations (hereafter, Civil Service Rules 2014), issued in 2014 to guide
     implementation of the Public Service Personnel Act. Several other pieces of legislation relating to public
     financial management, and to central and local government relations in particular, also have a bearing on the
     performance and incentives of the civil service. Annex 2 presents a brief overview of the relevant pieces of
     legislation, as they relate to HRM functions.

     18.	     A number of constitutional provisions are relevant to the public service. Overall, these
     constitutional clauses lay the formal foundation for a meritocratic civil service, with special emphasis on the
     fact that civil servants should be politically neutral. The clauses include these specific directions:

               •	    Civil servants should be politically neutral (clause 26a).
               •	    The president appoints and dismisses the heads of the civil service bodies (clause 208).
               •	    The president appoints the chair and members of UCSB, who are accountable to the president.
                     The terms of the chair and members are normally the same as the president’s (clause 246).
               •	    Armed forces and police personnel (who are also civil servants) are governed by the relevant
                     military and police laws (clauses 291 and 292).

     19.	    The Public Service Personnel Act is comprehensive and regulates all key human resources.
     The functions as embodied in the law include recruitment and selection, appointment, right to pay and
     compensation (including leave and pension entitlements), retirement, promotion procedures, discipline and
     accountability measures, and learning and capacity development.

     20.	      The Act also codifies a unitary public service. All employees of public sector organizations across
     different branches of government are classified as civil servants, whether working at union or sub-national
     levels, and in any capacity. However, civil servants are distinguished from the military and the police, which are
     not covered by the Public Service Personnel Act.

     21.	     The Act further classifies civil servants into two categories: six grades of gazetted officers and
     seven grades of non-gazetted administrative staff. 13 levels of civil service positions (6 gazetted and 7 non-
     gazetted) were identified in accordance with Union Government Notification No. 13/2015 on 19th March
     2015. The six grades of gazetted officers (in order of seniority) are 1) police chief, directors general (DGs),
     managing directors, etc.; 2) deputy police chief, deputy DGs and general managers; 3) directors and deputy
     general managers; 4) deputy directors and assistant general managers; 5) assistant directors and managers; and
     6) staff officers and assistant managers, etc.




     10  See Public Service Personnel Act, chap. 1, sec. 2e.


28
22.	      The non-gazetted administrative staff supports the gazetted officers via these positions. The
grades from highest to lowest are 1) inspectors, introduced in FY 2015/2016,11 and office superintendents (e.g.,
supervisors); 2) branch clerks (e.g., assistant supervisors); 3) senior clerks (e.g., senior technicians); junior clerks
(e.g., junior technicians); 6) senior assistants; and 7) junior assistants.12

23.	   The non-gazetted positions include not only administrative staff but also what one would call
“blue collar” or service staff—such as cleaners, drivers, and cooks.

24.	     Civil Service Rules 2014 further clarifies the pay, compensation, and human resource functions.
Civil Service Rules 2014, approved at the cabinet level for managing the civil service, spells out in detail how
the authority for HRM is to be exercised. For example, recruitment and appointment of gazetted positions
are the responsibility of UCSB, while the recruitment process for non-gazetted officers is the responsibility
of selection boards in individual agencies.13 Based on the general clauses in the Public Service Personnel Act,
the disciplinary and accountability measures for public servants are also delineated in Civil Service Rules 2014.
The rules and regulations, in particular in the context of pay and compensation, are further discussed in the
following chapters.

25.	     The mandate and functions of UCSB is regulated through a specific law, yet by international
standards the power of UCSB is relatively limited. UCSB’s role and functions, as reflected in the 2010
UCSB Law (State Peace and Development Council Law No. 24/2010), are limited to recruitment, selection,
training, and advising the Government of Myanmar on civil-service policy issues.

26.	     Several other union ministries are also involved in the management of the civil service. The
Office of the President and the State Counselor’s Office (both ministry level), plus the Ministry of Home
Affairs through its General Administrative Department14 (GAD), play a leading role in carrying out the policy
of administrative reform. MOPF has an important advisory role on pay levels and the organizational structures
and staffing requirements of union ministries.

27.	     The legal framework governing the civil service is clear and comprehensive. However, the
ambiguity of the overall governance framework—first and foremost, the relations between central and local
government—affects the management of the civil service. For example, there is a lack of clarity regarding the
authority for deconcentrated agencies to recruit and select staff. The grade system appears rational, but the
inspector’s grade introduced in FY 2015/2016 is somewhat of an anomaly. This was a custom mini-grade,
created just for this group of 5,000 officers in a civil service of over 1 million people.

Relevant state structures for the management of the civil service
28.	    The state administrative structure is set out in the Constitution. The union level comprises 7
regions and 7 states, each with an average of 4-5 districts, for a total of 73 districts. Districts comprise, on
average, 4-5 townships, with 330 townships in total. (Townships consist of wards and village tracts.) The
administrative structure is illustrated in figure 2.




11  This new level was added in FY 2015/2016. It is said to encompass about 5,000 uniformed staff, mostly in the Ministry of Home
Affairs and some state administrative offices, and includes such positions as local police officers and firearms instructors.
12  For a detailed overview of job titles for gazetted and non-gazetted staff by grade, see annex 4.
13  The human resource functions are further described and analyzed in chapter 6.
14  Predominantly at sub-national government levels.


                                                                                                                                    29
     Figure 2:       The Structure of Myanmar’s union and sub-national administration


                                                                 The Republic of the Union of Myanmar



                                                    Regions and States                                       Nay Pyi Taw
                                                          (14)                                            (Union Territory) (1)


       Self-Administered           Self-Administered
          Division (1)                  Zones (5)


          Districts (2)                                                      Districts (71)                      Districts (2)


         Townships (6)              Townships (12)                         Townships (304)                      Townships (8)


                                                                             Towns (441)                          Towns (8)


                                                                              Wards (3282)                     Wards (58)
                                                                         Village-Tracts (13402)           Village-Tracts (187)


                                                                            Villages (62933)                    Villages (796)

     Source: Constitution (2008) and General Administration Department of the Ministry of Home Affairs (2017)
     Note: Nay Pyi Taw is the capital of Myanmar.


     29.	     According to the 2008 Constitution, the members of the Government of Myanmar consist of
     the president of the Republic of the Union of Myanmar, vice presidents, union ministers, and the
     attorney general. In 2016, the members of government include the president, two vice presidents, the state
     counselor, 22 ministers, the attorney-general, and the chair of UCSB. The powers of the Union Government
     are codified in the Constitution.

     30.	     The president, as head of the government, takes ultimate responsibility for the functioning
     of government ministries. The 2008 Constitution stipulates that three ministries report not to the president
     but to the commander of the armed forces: the Ministry of Defense, the Ministry of Home Affairs, and the
     Ministry of Border Affairs. A ministry is led by a high-ranking political appointee, the minister. One or more
     vice ministers can be appointed for their professional and technical skills. A permanent secretary system was
     re-introduced in 2015, after being abolished in 1962.

     31.	       Ministries are established on a functional basis and are organized into several departments,
     each one led by a director general or managing director responsible for an aspect of the ministry’s
     work. Most of the permanent secretaries were elevated from director general positions. A large ministry, such
     as the Ministry of Education, includes departments for basic and higher education. The departments, where
     most of the work of government gets done, are further divided into divisions, branches, and sections. (Figure
     3 lists all the ministries.)



30
 Figure 3:      Union Government ministries and offices

                                                     Ministries
 Ministry of Foreign Affairs                               Ministry of Electricity and Energy
 Ministry of President’s Office                            Ministry of Labour, Immigration and Population
 Ministry of Home Affairs                                  Ministry of Industry
 Ministry of Defense                                       Ministry of Commerce
 Ministry of Border Affairs                                Ministry of Education
 Ministry of State Counsellor’s Office                     Ministry of Health and Sports
 Ministry of Information                                   Ministry of Planning and Finance
 Ministry of Religious Affairs and Culture                 Ministry of Construction
 Ministry of Agriculture, Livestock and Irrigation         Ministry of Social Welfare, Relief and Resettlement
 Ministry of Transport and Communications                  Ministry of Hotel and Tourism
 Ministry of Natural Resources and Environmental           Ministry of Ethnic Affairs
 Conservation
Source: Ministry of Planning and Finance.




32.	    Regions, states, districts, and townships are, in essence, deconcentrated levels of the Union
Government and thus, as sub-national entities, do not have their own civil services. GAD in the Ministry
of Home Affairs runs an office in every region and state, known as the Government Office. This office
supports region and state governments with public administration. Union ministries also have offices at the
region and state level.

33.	      The overall picture is that line ministries and even departments within ministries have
considerable latitude to manage their own affairs, constrained only by rudimentary systems and central
procedures, whose scope is more limited than in many countries. The authority for the management of
civil service functions are spread across several agencies.

34.	    Roles and responsibilities of authorities for civil servant recruitment and structures lie mainly
in the higher levels of government. The president and Union Government have these responsibilities:

          •	   Appoint the chair and members of UCSB
          •	   Determine ministry and agency structures (Based on the advice from MOPF, the Union
               Government can make decisions on ministry and agency structures.)
          •	   Approve requests from agencies for new posts and to fill vacancies, based on advice from MOPF.

Parliament has no explicit role, but has used its authority in the last few years to increase civil servants’ pay and
recommend that national civil-service entry examinations be conducted in regions and states, not just in Nay
Pyi Taw.

MOPF advises on proposals with implications for the payroll and acts as accounting officer on payroll matters.


                                                                                                                    31
     UCSB
               •	     Recruits for staff officer posts
               •	     Approves agencies’ promotion proposals for gazetted officers
               •	     Assists the government in matters relating to the civil service
               •	     Administers rules and regulations relating to all civil servants
               •	     Provides basic training in order to improve skills of civil servants

     Line ministries and agencies15 initiate staffing requests to the Office of the President, including job descriptions,
     and manage their staffs’ performance, promotion, and discipline.

     The Ministry of Home Affairs and GAD play a key coordinating role in a public administration that is fragmented
     across the ministries at sub-national levels, and they are responsible for the appointment of administrators to
     the country’s 330 townships.

     35.	     Ministries have a standard hierarchy up to the level of director general; one of the directors
     general is appointed as a permanent secretary-cum-director general in the union minister’s office. Since
     ministerial posts are political appointments by definition, this means that the president has personal authority over
     the administration, which is at variance with the classic doctrine of separation between politics and administration.
     However, in practice, ministers rely on advice from their permanent secretaries and directors general.

     36.	   The above structure of authority translates roughly into the following division of labor in
     terms of managing the civil service:

               •	     Establishment control: A ministry wishing to increase its establishment applies directly to the Office
                      of the President and the Planning Department in MOPF. This creates situations where the
                      Budget Department in MOPF hears of a change in a ministry’s establishment only after the
                      authorization to fill the position has been given.
               •	     Recruitment: Line agencies determine their own staffing needs and make proposals to the Union
                      Government with accompanying comments/remarks from the Ministry of Planning and Finance.
                      They then recruit their own staff, apart from the “gazetted officer” posts which are UCSB’s
                      responsibility. Recruited non-gazetted and gazetted staff are registered at the Ministry of Labour,
                      Immigration and Population.
               •	     Pay and compensation: Preparation of revisions to pay scales is a responsibility of the Budget
                      Department in MOPF. The Cabinet submits the proposal (through annual budgets) to Parliament,
                      which then discusses and approves the budget bill.
               •	     Promotion: Line departments and agencies have the authority to promote personnel, subject to
                      compliance with the general guidelines in Civil Service Rules 2014, right up to the level of director
                      general. Directors general are appointed by the ministers and their deputy ministers. According
                      to the 2008 Constitution, the President shall appoint and dismiss heads of civil service bodies.
                      UCSB’s role is merely to ensure that the rules have been followed.
               •	     Training and learning: UCSB has the remit for training across the civil service. Its main activity is
                      pre-service training for new civil servants. It is also tasked with in-service training and carries out
                      a limited program. Some agencies have their own training arrangements. MOPF has established
                      a public finance academy, while GAD and the Planning Department in the Ministry of Home
                      Affairs have their own training centers.




     15 See Civil Service Rules and Regulations 2014, chapter 3-4 and 15-20 in particular.


32
37.	     Overall, three points concerning the Myanmar civil service are significant. First, there is no
single central agency responsible for civil service management in Myanmar. Functions are performed
across several agencies. In practice, line agencies have a great deal of practical autonomy to a degree that is
unusual, although not unique. (For example, Indonesia, Morocco, and Namibia have similar arrangements.) As
such, the authority for HRM is centralized, yet fragmented, at the union level. Second, basic systems—such as
consolidated, centralized pay roll management and an HRM system—for civil service management are not in
place, which is only to be expected in view of Myanmar’s development level and history.
 




                                                                                                              33
     CHAPTER 3
     HOW AFFORDABLE IS MYANMAR’S WAGE BILL?
     38.	      The overall size of the public-sector wage bill has important implications for fiscal policy in all
     countries. In particular, the share of the wage bill in total government expenditure can impact a government’s
     ability to implement counter-cyclical policies. Upward or downward adjustments to government spending during
     periods of economic recession or boom, respectively, become more difficult if nondiscretionary spending on
     wages consumes a large share of total expenditure. It is, of course, not impossible to adjust the wage bill (e.g.,
     through hiring freezes, nominal wage cuts, and potential retrenchments), but this is usually the last resort when
     it comes to budget consolidation.

     39.	     Although the size of the wage bill is not an immediate concern for Myanmar, there are
     growing fiscal vulnerabilities from external shocks that call for closer attention to the overall growth in
     the public-sector wage bill. Since FY 2015/2016, the Government of Myanmar has faced significant fiscal
     pressures, linked to declining commodity prices and prolonged pressures on the exchange rate. Gas receipts,
     which account for 15-20 percent of general government revenue, declined by an estimated 0.3 percentage points
     of gross domestic product (GDP) between FY 2014/2015 and FY 2015/2016. The weakening of the Myanmar
     kyat (MMK), on the other hand, increased operational costs in the power sector, requiring an estimated 0.7
     percent of GDP in additional subsidies. These external pressures were exacerbated by growing losses amongst
     state economic enterprises outside of the power sector.

     40.	      In light of these developments, the public-sector deficit expanded from an estimated 1.1
     percent of GDP in FY 2014/2015 to 3.2 percent in FY 2015/2016. This in turn contributed to a sharp rise
     in inflationary financing of the deficit by the Central Bank of Myanmar, due to a lack of financing options. To
     deal with these challenges, the Government of Myanmar has made significant adjustments on the expenditure
     side, particularly on public investment, while trying to protect priority spending on education, health, and
     agriculture. After a 45 percent, nominal increase to the wage bill in FY 2014/2015—linked to higher pay and
     compensation and hiring of education and health workers—wage bill growth stabilized at 5 percent in nominal
     terms in FY 2015/2016.

     41.	        The size of the public-sector wage bill in Myanmar is comparatively low in international
     terms, at 3.5 percent of GDP in FY 2015/201616 (see figure 4). This finding, however, should be interpreted
     cautiously, as international wage bill comparisons are fraught with difficulties. Firstly, to compare across countries,
     a common definition of the public wage bill is needed to ensure consistency. The general government wage
     bill17 is the most commonly used definition, but many countries do not follow it. In Myanmar, for example, the
     armed forces and daily wage workers are not included, which artificially lowers the true size of the wage bill in
     international comparisons. Secondly, there is no universally accepted “correct” size of the public sector. The
     functions, size, geography, administration, and policies of a government differ across countries, which makes
     meaningful comparisons difficult without controlling for these factors. Thirdly, since GDP is calculated from
     the baseline prices of a weighted consumption basket, revising the year of the baseline prices can significantly
     increase the estimation of GDP. In this case, the wage bill to GDP percentage would be significantly lowered,



     16  IMF Article IV, 2015.
     17  “The general government sector consists of resident institutional units that fulfill the functions of government as their primary
     activity” (IMF Article IV, 2014).


34
although in reality the true impact on the budget would remain the same. For this reason, the wage bill as a
percent of total expenditure may be a more appropriate comparator to denote the true resource constraint.18
Finally, the size of the wage bill should not be considered in isolation from its impact on the overall budget
balance.


 Figure 4:           Comparison of international wage bills, 2014 (percent of GDP)


                            34.5                                             30.5                                                                                                     34.2
   35                                         28.3                                                                                                                        28.9                          29.4
   30                                                                                                      24.8            25.6                             23.7
   25                                                                                                                                        21.6
                                                             18.7                            17.4                                                                                                  16.8
   20          14.1                                                                                                                                                  12.9           13.7
   15                                                                                      7.7         7.9             9.3              9.6           10.5
                                                                            7.1
   10        3.5           3.9    3.3     5.5             6.1
    5                                                           0.4                              0.3
    0
   -5                                            -2.1                             -0.8                                                                        -1.1                                        -1.1
  -10              -4.8                                                                                                         -4.1          -5.6                                          -3.8
                                                                                                                                                                             -6.0
  -15                                                                                                          -11.1
                **           re            sia            ea             nd                ny           ia*             at es                m           on            zil           rica            k*
             ar          ap
                            o             e             or          ail
                                                                        a                a
                                                                                                    go
                                                                                                       l
                                                                                                                     St             gd
                                                                                                                                       o               ti          Br
                                                                                                                                                                      a
                                                                                                                                                                                  Af
                                                                                                                                                                                                   ar
          nm          g                on             K                               rm                                                            ra                                         m
        ya         Sin            In
                                    d            th             Th                 e             on            ted                in             de                          th             en
                                              ou
                                                                                  G             M           ni
                                                                                                                                K             Fe                          ou              D
     M                                    S                                                                U            ted               n                           S
                                                                                                                    Un
                                                                                                                       i
                                                                                                                                    s  sia
                                                                                                                                 Ru

               Percent of GDP                             Wage Bill Percent of Expenditure                                                    Budget Deficit Percent of GDP


* 2013.
** 2015.
Sources: IMF Government Finance Statistics Manual and IMF Article IV.




42.	      The size of the wage bill has, however, grown significantly in recent years. Starting from a low
level in FY 2011/2012, the wage bill jumped significantly from FY year 2014/2015 to FY 2015/2016, due to
increases in the base salary and other monetary earnings, including the regional allowance. (These changes
are discussed in more detail in chapter 4.) With this latest increase, the wage bill has in total nearly tripled as a
percentage of GDP and doubled as a percentage of total revenues and total expenditures during the past five
years (figure 5). This pace of growth may not be sustainable in future years. Research by Eckardt and Mills in
201419 showed that growth in the wage bill over time is a much more significant determinant of a government’s
budget deficit than the size of the wage bill in any given year. Therefore, this finding reinforces the importance
of restraining excessive growth of the wage bill to meet the fiscal targets identified from the Government of
Myanmar’s MTFF.




18  See E. Baddock, P. Lang, and V. Srivastava, 2015, “Size of the Wage Bill: Government Wage Bill and Employment,” for additional
challenges in measuring the public sector wage bill.
19  S. Eckardt and Z. Mills, 2014, “What Goes Up Must Come Down: Cyclicality in Public Wage Bill Spending.”


                                                                                                                                                                                                                 35
      Figure 5:      Wage bill growth in Myanmar, FY 2011/2012 to FY 2015/2016 (percent)


       20                                                                                         18.2


       15
                       9.9                                                                        14.1
                                               8.5                    9.0            8.3
       10

                                               8.0                    8.4            7.5
         5             7.2
                                                                                                         3.5
                                                     2                      2.1            2.2
                             1.2
         0
                    2011/12                2012/13                  2013/14        2014/15       2015/16

                                                Revenue              Expenditure     GDP

     Source: IMF Article IV, 2015.


     43.	    The majority of public employment is concentrated in the Ministries of Education, Home
     Affairs, and Health (see figure 6), which collectively accounted for 58.6 percent of the 1,104,960
     recorded staff at the union, region, and state levels in FY 2014/2015.20 The Ministry of Education had
     442,807 employees; the Ministry of Home Affairs, 120,027 employees; and the Ministry of Health, 85,700
     employees. Fifty-five percent of the total work force is female.




     20  Contract, temporary, and daily workers are not included.


36
Public sector employment
Figure 6:       Public employment in Myanmar, FY 2015/2016


                                          Education                                                                        441.8
                                      Home Affairs                               120.0
                                 Health and Sports                        85.7
              Agriculture, Livestock and Irrigation                      74.0
                  Transport and Communications                        54.3
               State Administrative Organizations                    49.0
                                            Defense                  44.9
                             Electricity and Energy                  44.9
 Natural Resources and Environmental Conservation                   40.8
                                            Industry                36.3
                             Planning and Finance                 23.9
             Labour, Immigration and Population                   21.1
                                       Construction              19.0
                           Science and Technology                15.7
                                              Other                33.3
                                                            0     50    100 150 200 250 300 350 400 450 500
                                                                              Public employees (in 1000s)

Notes: This data was received from the CSO. The total number of employees for the non-civilian defense sector was not provided.
Data in bottom graph line “other” include employees of the Ministries of Commerce, Ethnic Affairs, Hotel and Tourism, Foreign
Affairs, Social Welfare, Border Affairs, Commerce, Natural Resources and Environmental Conservation, Religious Affairs and Culture,
Construction, and Information.

44.	     The overall size of the public work force has grown by approximately 10 percent since 2011
(see figure 7). The majority of this growth occurred in the service delivery sectors, such as the Ministries of
Education and Health, which coincided with the priorities set by the 2011 Union Government after elections.
Most of the growth has occurred in the last two years and has been consistent across ministries and state
administrative organizations.21

 Figure 7:      Employment in ministries and state administrative organizations, 2011-2015


  1,200,000                                                                                                       49,027
                      42,910                 42,483                 44,315                 47,477
  1,000,000

    800,000

    600,000
                      957,428                946,508                950,343                995,581               1,055,933
    400,000

    200,000

            0
                        2011                   2012                    2013                  2014                   2015

                                        Ministries        State Administrative Organizations

Source: CSO

21  State administrative organizations include UCSB, the attorney general’s office, the auditor general, and the Supreme Court.
                                                                                                                                      37
     45.	      Almost all public employees are in non-gazetted or non-management posts, which comprise 92
     percent of total employment. This data was derived from budget forms 2C and 2D, which are the provisional
     budget estimates submitted by each government department for their anticipated staff at the union level for FY
     2016/2017. (Region and state employees are not included.) Gazetted posts for senior managers and technical
     staff have significantly higher pay and follow a different recruitment process. The minimum monthly basic
     salaries are provided for the different grades in table 1, but additional compensation is provided through pay
     increments and allowances, which is detailed in chapter 5.

      Table 1:       Employment by base pay grade, FY 2015/2016

          Type                                      Sample job title                                  No. of staff      Monthly base
                                                                                                                          salary
                                                                                                                           (in MMK)
                        Director general/managing director                                                       268        500,000
                        Deputy director general/general manager                                                  833        380,000
       Gazetted         Director/deputy general manager                                                        2,908        340,000
        posts           Deputy director/assistant general manager                                              7,308        310,000
                        Assistant director/manager                                                           18,279         280,000
                        Staff officer/assistant manager                                                      43,682         250,000
                        Inspector (new level as of FY 2015/2016)                                               5,073        210,000
                        Office superintendent/supervisor                                                     25,564         195,000

         Non-           Branch clerk/assistant supervisor                                                    99,842         180,000
        gazetted        Upper division clerk/technician (grade 6)                                           279,802         165,000
         posts          Lower division clerk/technician (grade 4)                                           284,656         150,000
                        Record keeper/head peon                                                              66,433         135,000
                        Peon/sweeper                                                                        134,626         120,000
                                                                                           Total            969,274
     Source: MOPF, budget forms 2C and 2D, FY 2015/16.
     Note: The data are provisional and do not include employees at the region or state levels, which is why the total number of employees
     is lower than the CSO employee data.


     46.	     There are no immediate indications that the wage bill is crowding out other expenditures,
     even though recent fiscal pressures have prompted consolidation of capital spending. An accurate
     assessment of the wage bill impact on other expenditures is complicated by the lack of breakdown on defense
     wage expenditure, which is grouped together under “other recurrent” expenditure in figures 8-11. The non-
     defense wage bill for all ministries in Myanmar was estimated at around MMK 1.7 trillion, in a total budgeted
     expenditure of MMK 11.7 trillion, around 14 percent (figure 8). The share of the wage bill in total expenditure
     has steadily increased (figure 9) and has been an important part of overall spending growth (figure 10). However,
     even if it is generously assumed that the defense wage bill accounts for around 40 percent of other recurrent
     expenditure, stable sources of revenue (i.e., excluding oil and gas, and one-off payments) are sufficient to cover
     wage bill, pensions, and interest payments (nondiscretionary spending in figure 11). In other words, there seems
     to be some fiscal space within stable sources of revenue (also excluding financing items) for discretionary items
     of expenditure.

38
     Figure 8:                           Breakdown of ministries' expenditure                     Figure 9:                 Breakdown of ministries’ expenditure
                                         (in billions of MMK)                                                               (% share)


                                                                                                             50%
                          12,000
                                                                                                             40%
                          10,000

                           8,000                                                                             30%




                                                                                                  % share
      Kyat billion




                           6,000                                                                             20%

                           4,000
                                                                                                             10%
                           2,000
                                                                                                              0%
                                -                                                                                        2013/14      2014/15         2015/16       2016/17
                                        2013/14       2014/15       2015/16      2016/17
                         Contribution      Interest   Other recurrent     Wage bill     Capital                    Contribution          Interest                Other recurrent
                                                                                                                   Wage bill             Capital




     Figure 10:                          Expenditure breakdown -                                  Figure 11:                Nondiscretionary spending vs.
                                         contribution to growth (%)                                                         recurrent revenue (% of GDP)




                                                                                                             15%
                         95%

                         75%
Contribution to growth




                                                                                                             10%
                                                                                                  % of GDP




                         55%

                         35%                                                                                 5%

                         15%
                                                                                                             0%
                          -5%                                                                                         2013/14 PA    2014/15 PA      2015/16 PA    2016/17 BE
                                        2014/15           2015/16             2016/17
                                                                                                                                   Discretionary spending
                         Contribution      Interest   Other recurrent     Wage bill     Capital                                    Non-discretionary spending


Source: MOPF and World Bank staff estimates.




Wage bill forecasting model
47.	     To help the Government of Myanmar strengthen its fiscal estimates of wage expenditures and
inform key policy decisions, the World Bank and the MOPF Budget Department jointly developed a
wage bill forecasting model. This forecasting tool will allow policy makers to accurately forecast the fiscal
impact of changes in pay policy and employment, and allow authorities to consider different policy options to
attain the proposed wage bill to GDP, domestic revenues, or public expenditure targets by a given year. The
wage bill in Myanmar is a growing expenditure item in the budget; thus, its size and trend have a significant
impact on the budget balance, public debt levels, and other macroeconomic indicators. The model builds upon

                                                                                                                                                                                   39
     previous wage-bill development work that the World Bank has supported in other countries and was specially
     customized for the Myanmar civil-service pay structure. It is designed to be easy to use and can accommodate
     allowances, benefits, pay steps or increments, income tax, and pension contributions in its calculations. It will
     allow authorities to consider different policy options to attain the proposed wage bill target within MTFF, and
     will also allow for more informed decision making in the following trade-offs:

              •	    Higher pay versus higher levels of employment
              •	    Higher wage bill versus more operational and maintenance expenditures
              •	    Across-the-board wage increases versus more targeted wage increases

     48.	     The model is derived from the budget estimates in budget form 2C, which is the best payroll
     data that can currently be collected. This form contains the total number of staff in each pay grade and the
     corresponding minimum base salary. Individual payroll records are currently not widely available, so the model
     had to use bulk estimates for each pay grade category. As a consequence, it was not possible to model changes
     at the individual level or actual basic salaries (including pay increments) and allowances at this stage.

     49.	     The wage bill forecasting model has progressed in development and now incorporates wage
     bill data from all 22 ministries (see box 1). The development of the model was a lengthy process and
     significantly benefited from inputs and collaboration with the Government of Myanmar. The formation of
     the Inter-Ministerial Committee on Pay, Compensation, and Human Resource Management in December 2015
     provided leadership and greatly advanced payroll data collection by the seven pilot ministries.22 The Government
     task force team also provided continuous support to collect payroll data from the remaining ministries and to
     help the World Bank team understand the nuances of the payroll data and payroll management.


     Box 1:        Timeline for developing Myanmar’s customized wage bill model


        •	    August 2015: Training on "generic“ version of wage bill model
        •	    December 2015: Inter-ministerial Committee on Pay, Compensation, and Human Resource
              Management created
        •	    March 2016: 1st Myanmar model version plus training
        	     -	 Available data cover 389,733 employees in the Ministry of Education Department of Basic
              Education
        •	    May 2016: 2nd Myanmar model version plus training
        	     -	 Available data cover 435,932 employees in four of seven pilot ministries
        	     -	 Pilot of individual-level model* (200 staff in MPOF Budget Department)
        •	    August 2016: 3rd Myanmar model version plus training
        	     -	 Available data cover 630,000 employees from all seven pilot ministries
        •	    September 2016: 4th Myanmar model version
        	     -	 Coverage of all 22 ministries, totaling 969,274 employees
        * The MOPF Budget Department provided individual payroll data that included actual base salary (including pay increments),
        date of birth, and date of entry into current post.




     22  The Inter-Ministerial Committee comprised representatives from MOF, MNPED, UCSB, Ministry of Energy, Ministry of Health,
     Ministry of Education, Ministry of Home Affairs, and Ministry of Labour, Employment, and Social Affairs.


40
50.	    For pay and employment increases, the model gives the flexibility to input across-the-board
increases or distinct increases by each or any pay grade. In a hypothetical example (figure 12), if the
Ministry of Education added 100,000 new teachers (20,000 high school teachers, 32,000 middle school teachers,
and 48,000 primary teachers) over the next four years, holding all other staffing and pay policies constant, the
model shows that the fiscal impact would be MMK 48.24 billion per year extra in base salary.


Figure 12:    Hypothetical scenario if the Ministry of Education recruited 100,000 new teachers




51.	     The model gives the flexibility to experiment with many different scenarios. In another
hypothetical example (figure 13), if base pay was increased by 10 percent for each of the next five years, the
fiscal impact would be MMK 3.25 trillion over the period. The fiscal implications from any combination of pay
and staffing changes are possible through the model and should be aligned with MTFF targets.




                                                                                                               41
      Figure 13:       Hypothetical scenario of a 10 percent increase in base salary




     52.	     Multiple training sessions were held on the model and a training manual was developed and
     translated into Myanmar language. The model will be handed over to MOPF with government staff trained
     to use it, completing a critical objective of building the model. Each stage of the model’s development was
     shared with the Government’s team. The training sessions provided numerous practice examples and hands-on
     training to all participants. Additional training was provided on Microsoft Excel and Pivot tables. The training
     manual contains detailed instructions on how to build, update, and use the forecasting model for policy decision
     making.

     Recommendations for managing the wage bill and the work force
     53.	    RECOMMENDATION 3.1: The wage-bill forecasting model could be integrated into joint
     work of the Government of Myanmar and World Bank on strengthening the medium-term fiscal
     framework. The wage-bill forecasting model provides a more robust methodology than the existing practice
     of estimating future wage expenditures, which rely on simple percentage increases to the overall wage bill. The
     MTFF task force received training, and more training is available if requested.

     54.	     A more robust wage-bill forecasting model could be developed if individual employee payroll
     data was collected more systematically.23 The individual-level model will enable the Government of Myanmar
     to 1) forecast the wage bill with even greater accuracy than is possible with the existing version of the model,
     and 2) undertake certain aspects of human resource planning. Specifically, model users could easily analyze
     the age profile, time-in-post, increment costs, and expected retirement dates of civil servants (by department,
     grade, and possibly also by job title), and develop appropriate plans to cope with these factors. Sector-specific


     23  These data include 1) job title; 2) date of birth; 3) date of hire in civil service; 4) date of hire for current post; 5) current base salary,
     including pay increment; and, 6) if applicable, regional allowance for hardship area.


42
models could also be created, for example, to assist with work force planning in the Ministry of Education,
which would allow the Ministry to appropriately plan recruitment and distribution of teachers within their
budget ceiling over the medium term.

Payroll management
55.	      At this stage, however, collecting individual employee data is challenging because payroll
data is highly fragmented across Myanmar’s civil service. Currently, there is no centralized database that
contains individual payroll data. Each department in each ministry currently collects the wage bill data for
budget form 2C, but this data is highly aggregated and not consolidated, even at the ministerial level. Important
details, such as job titles, physical location of staff, retirement date, etc., are not captured, which makes it
difficult to build the wage-bill forecasting model, conduct payroll audits, and undertake wage bill analysis.

56.	       RECOMMENDATION 3.2: Department-level wage bill reports could be consolidated into
one central database, which could be located at MOPF (for budget control) and GAD (for human
resource planning). For this regular reporting to occur, a uniform template will be necessary to ensure
consistency. The World Bank proposed a template for the Government of Myanmar to consider, which would
initially capture the information shown in figure 14.

Figure 14:     Proposed template for collecting individual-level payroll data

  Employee          Ministry      Department         Section         Job title         Job location   Date of birth
   name
      xxx              xxx             xxx             xxx             xxx                 xxx            xxx
  Gender and      Date of hire    Date of hire     Official pay   Actual base salary, including        Regional
   education                       in current         grade               increments                   allowance
                                    position
      xxx              xxx             xxx             xxx                       xxx                      xxx


MOPF could issue instructions to ensure that this individual-level payroll data is systematically collected in
tandem with other monthly expenditure-reporting requirements. The Government of Myanmar would also
need to consider how information would be stored efficiently, who would have access to it, and how regularly
it would be updated.

57.	     RECOMMENDATION 3.3: The Government of Myanmar could also consider introducing
an electronic centralized payroll system. A centralized system would capture the complete payroll data and
have controls to minimize possibility of errors. The benefits would also include efficiency gains by automating
manual tasks, improving capacity to conduct payroll audits, and providing greater ability to conduct wage bill
analysis and both wage bill and pension forecasts. There are two main components of centralized payroll
systems: personnel registry and payroll database. These databases are usually linked with other systems, such
as HRMIS and FMIS, to maximize the benefits. A number of functional modules are included in the design of
these systems to support operational requirements.

58.	     A comprehensive needs assessment is the first step to automate the registration of personnel
and collection of payroll data. The needs assessment helps to further understand current practices and the
legal and regulatory framework, identify gaps, and design a robust platform designed to meet the needs of
Myanmar.

                                                                                                                      43
     59.	    The second step is usually to introduce a unique personnel identification (ID) for each civil
     servant, either by using one of the existing ID management systems (such as the national ID, voter
     ID, or tax ID) or by designing a new identifier. This ID would stay with employees for their entire career,
     regardless of whether they switched ministries or departments. These IDs would be the linking identifier in the
     personnel registry to consistently record and maintain relevant data. The proper management of this registry—
     including its integrity, security, and reliability—is more important than its creation. If it is possible to develop
     a web-based centralized solution (benefiting from existing infrastructure) for the personnel registry and payroll
     database, this may reduce the complexity of proposed solutions. A decision on the introduction of unique
     personnel ID can be taken after a rapid assessment of existing ID management systems.24

     60.	       It is not, however, a trivial task to collect individual-level employee data and distribute ID
     cards for the initial creation of the personnel registry. The collection of this data will be time intensive
     at first, but will become much easier; the payroll database can then be updated to reflect changes from month
     to month. This process could be automated with a properly designed system. Properly trained staff plus the
     necessary oversight mechanisms and funding are critical to ensure the sustainability of such a system.




     24  The rapid assessment can be done using the Identification Management Systems Analysis tool that has been developed by the
     Identification for Development program. A World Bank team initiated such an assessment for Myanmar in autumn 2016, working with
     the Ministry of Labor, Immigration, and Population.


44
CHAPTER 4
HOW DOES MYANMAR PAY ITS CIVIL SERVANTS?

Introduction of civil service compensation
61.	    As Myanmar embarked on far-ranging reforms in recent years, changes in the public sector
have extended to the structure and level of compensation for civil servants. For four decades, the
Government of Myanmar rarely updated its civil service base salary scale.25 Since 2011, the Government has
made more frequent adjustments to the base salary scale and to other aspects of compensation. This shift
has opened up a discussion that involves four issues at the heart of compensation policy for any government:
affordability, competitiveness, fairness (equity), and transparency:

          •	   Affordability: How affordable is the present compensation system and any changes that may be
               considered for the future?
          •	   Competitiveness: Does civil service compensation help attract and retain the skills that government
               needs? How does it compare to “real world” alternatives? Is it adequate, given the economic
               context?
          •	   Fairness (equity): Do equivalent jobs receive equivalent compensation?
          •	   Transparency: Is civil service compensation clear and easy to understand?

62.	     This report analyzes these issues, in an environment where data are often scarce or trapped
in hard-to-access paper records. Chapter 3 addresses the affordability theme, examining the “fiscal weight”
of personnel-related expenditures and presenting a tool for modeling the fiscal impact of changes to the base
salary scale. This chapter sets the stage by presenting the compensation system in effect at the time of the
review (FY 2015/2016), and chapter 5 then tackles the three remaining themes: competitiveness, fairness, and
transparency. This analysis leads to options proposed for improving Myanmar’s system in ways big and small,
from near-term and longer-term perspectives.

A few words about terminology
63.	    As explained in the introductory chapter, this report uses international English terminology.
The technical terms in this text are regularly used in specialist discussions of civil service, public administration,
and human resource issues, and in similar studies in other countries. However, within Myanmar, certain English
words have acquired idiosyncratic meanings. Where possible, we point out such differences in the text, so that
Myanmar readers can adjust to the international terminology. The report also includes a glossary that explains
the meaning of common terms used for civil service and public sector issues (see annex 1).

64.	   Two terms in particular require the attention of readers in Myanmar. First, in this report, the
word “compensation” has the meaning used in the field of HRM: “the total amount of the monetary and non-
monetary pay provided to an employee by an employer in return for work performed as required. Essentially, it’s




25  From 1972 to 2010, the base salary scale was adjusted only five times—in 1972, 1989, 1993, 2000, and 2006. The next change, in
2011, marked the start of more frequent adjustments to base salary and other components of compensation.


                                                                                                                                     45
     a combination of your pay, vacation, bonuses, health insurance, and any other perk you may receive.”26 Another
     English word that expresses essentially the same concept is “remuneration.” In Myanmar, however, the English
     word “compensation” is often associated with pensions and severance pay.27 Second, Myanmar speakers of
     English often use the word “facilities” to refer to what, in standard English, is more typically called “in-kind”
     or “nonmonetary” compensation (i.e., something provided as material goods or services rather than money.)
     This report refers to vehicles, fuel, housing, and other goods or services that are provided to civil servants on a
     regular basis, as part of their employment, as “in-kind” or “nonmonetary” allowances.

     A simple analytical framework that helps explain compensation
     65.	     To understand and evaluate formal compensation in any country, a clear analytical framework
     is helpful. This ensures a shared understanding for all readers. It also brings in international practice,
     including concepts and terminology that may differ from Myanmar conventions. Furthermore, clear and
     consistent use of concepts and terminology will help in making comparisons between Myanmar’s situation and
     international practice in general or other countries specifically.

     66.	     The foundation for the Myanmar compensation review is an analytical framework that the
     World Bank regularly uses in countries around the world. Table 2 presents this framework, including some
     examples. It is important to note that these are examples, not necessarily recommendations. In fact, an overly
     complicated compensation structure with an excessive number of (or highly varied) allowances and in-kind
     benefits is difficult to manage.28 It also does not satisfy important criteria such as transparency and fairness.
     Furthermore, an overly complex compensation system poses challenges for budget management, since some
     personnel-related expenditures may be hidden and difficult to control.

     67.	      As the analytical framework illustrates, compensation includes more than just base salary. In
     many developing countries, including Myanmar, discussion of compensation focuses narrowly on base salary.
     However, the analytical framework and this review recognize that compensation has a number of components
     in addition to base salary, such as allowances, benefits, and other intangible factors. Some components are
     provided in monetary form (such as Myanmar’s regional allowance for hardship areas), while others are
     provided in kind (free or subsidized housing). Benefits that are often found in the public sector include annual
     leave and sick leave. Some parts of compensation are provided now, while others are expected in future (most
     notably, pensions). Additionally, intangible factors that are not money, goods, or services can also add to a job’s
     attractiveness. These include the prestige of being a civil servant, and job security. It is important to consider
     all these different components in order to have the best possible understanding of total compensation.




     26  See the definition from S. Heathfield, 2016, “How Is Compensation Determined for an Employee? Understanding Your Job Offer
     or Current Compensation,” online at https://www.thebalance.com/compensation-definition-and-inclusions-1918085.
     27  Specifically, government regulations specify a “compensation pension.” As the World Bank’s pension team points out, this is in
     fact “a form of severance pay rather than a source of income support in old age. It has been utilized in the process of privatization
     and downsizing of government enterprises. The beneficiaries now represent a significant and potentially growing share of the total
     pensioner population” (World Bank, 2014, “Myanmar Civil Service Pension Reform” )
     28  South Korea is an example of good practice, in contrast to Indonesia’s more complicated system.


46
Table 2:       Analytical framework of common components of public sector compensation

                                             Explicitly agreed (contract, regulations, etc.)       Associated intangible
                                                    Monetary                In-kind (non-                 factors
                                                                              monetary)
                                                                        Examples:
                                                                        health insurance,
                        Base                  Base wage/salary
                                                                        employers’ pension
                                                                        contributions              Examples: job
                                                                                                   security, prestige,
                                                                        Examples:
                                                                                                   professional
                                                                        subsidized
 Current                                     Examples: housing,                                    trips abroad,
                                                                        housing, meals,
                        Allowances           telephone, hazard                                     training, secondary
                                                                        transportation,
                                             pay, cost of living                                   employment
                                                                        mobile telephone
                                                                                                   opportunities
                                                                        airtime
                                                                        Annual leave, sick
                        Benefits
                                                                        leave
                                                                                                   Examples:
                                                                                                   reputation, re-
                                                                        Examples: housing,         employment after
 Future expectations                         Pension
                                                                        land                       retirement, job
                                                                                                   opportunities
                                                                                                   elsewhere

Source: Developed on the basis of
http://www1.worldbank.org/publicsector/civilservice/Mayseminar/Mukherjee.pdf.



68.	     The analytical framework does not address informal or illicit income, and neither does this
review. Informal income refers to extra payments or gifts that may, in some countries, be customary in certain
situations (e.g., a small gift to a teacher).29 In contrast, illicit income is obtained in violation of formal rules and
ethics standards governing the workplace.

69.	    Informal compensation is an important issue, and every government should take steps to
sanction and eliminate its illicit forms. This topic was, however, outside the scope of the review, the first
in-depth examination of Myanmar’s formal civil service compensation system.

Myanmar’s current civil-service compensation system
70.	 The analytical framework guides this report’s discussion of Myanmar’s civil-service
compensation system. Table 3 presents an overview of the main components of compensation, and annex 2
describes each of the main entitlements in more detail. This information is drawn from the World Bank team’s
review of official regulations issued by the Ministry of Finance or other union-level bodies, and Civil Service
Rules 2014. (A full list of documents consulted is available in annex 3.)


29  For an example of informal practices elsewhere, see World Bank, 2015, “Lao PDR Civil Service Pay and Compensation Review:
Attracting and Motivating Civil Servants.”


                                                                                                                            47
     71.	     Table 3 does not capture other, more localized, practices. It is possible that the management of an
     individual ministry, department, agency, or other unit decides on additional compensation practices. Information
     from interviews indicates that such practices do exist, ranging in value from fairly modest to significant compensation
     arrangements.30 More generally, several individuals who were interviewed for this study shared the perception that
     “rich” institutions provide more to their employees than other, less well-resourced bodies.

      Table 3:        Main components of compensation in Myanmar’s civil service (2015)

                                                  Explicitly agreed (contract, regulations, etc.)                             Associated
                                                                                                                          intangible factors
                                                Monetary                 In-kind allowances and operational
                                                                                                                          and opportunities
                                                                                      expenses
                                                                                                                          for some (not all)
                                                                                                                                 staff
                                                                        Free medical care for certain positions
                    Base              Base salary
                                                                        or bodies30
                                      •	 Regional allowance for
                                                                        •	 In-kind allowances for some
                                         hardship area
                                                                           positions (decided by each
                                      •	 “Awards” and
                                                                           department): Housing, vehicle, fuel
                                         “remuneration” for                                                               •	 Job security,
                    Allowances                                             allowance, telephone, and mobile
                                         additional or special                                                               stability
                                                                           phone airtime
                                         work                                                                             •	 Prestige
                                                                        •	 Expenses for duty-related travel*
                                      •	 Shift allowances for                                                             •	 Domestic or
                                         health-care workers                                                                 international
                                                                        •	 Paid or partially-paid leave: earned              training
                                                                           (annual) leave, casual leave, special          •	 Work-related
      Current
                                                                           casual leave for rabies treatment,                travel abroad
                                                                           leave for donating blood, quarantine           •	 Scholarships
                                      •	 Tax exemptions on                                                                •	 Opportunities
                                                                           leave, medical leave, maternity leave,
                                         income                                                                              for secondary
                                                                           paternity leave, preparation leave for
                                      •	 Tax deduction for life                                                              employment
                                                                           retirement, special disability leave
                    Benefits             insurance premium for
                                                                           for workplace injuries, hospital leave
                                         civil servant and spouse
                                                                           (in certain bodies), sick leave for
                                      •	 Tax deduction for any
                                                                           shipboard staff, study leave, and long
                                         social security payments
                                                                           vacation leave (for teachers)
                                                                        •	 Leave without pay
                                                                        •	 Free minibus transport to/from work
                                                                           for certain positions or bodies
                                      •	 Superannuation pension
                                      •	 Early retirement and
                                         "relaxation" pensions
                                      •	 Invalid (disability)
                                         pension                                                                          •	 Re-employment
      Future expectations
                                      •	 Family (survivor's)                                                                 after retirement
                                         pension
                                      •	 Termination benefit
                                         ("compensation
                                         pension")
     Source: Review of official regulations conducted by World Bank and MOPF Budget Department.
     * Included in this table because, in some cases, they may supplement income in full or in part (e.g., a vehicle, if used for non-work travel).

     30  As an example, employees of the Social Security Board reportedly receive free health care, unlike staff of most departments. Staff
     at one ministry are said to receive bags of rice (an important dietary staple in Myanmar) by decision of senior management.


48
72.	    Information shared by officials in small focus-group discussions is consistent with table 3.
As described in chapter 6 on HRM, in the course of this review, the World Bank team sponsored small-
scale qualitative research to hear the views of civil servants themselves via focus group discussions. Box 2
summarizes what focus group participants had to say about compensation in the civil service.



Box 2:       Looking beyond base salary - perceptions from focus group discussions


   Directors (discussed in one of two groups)
   •	    Monetary: Some departments have a welfare fund for "social matters," but others do not. Travel
         allowance was mentioned.
   •	    Nonmonetary entitlements: These vary by rank, position, and department. They include free or
         subsidized housing, free or subsidized transportation, telephone, petrol, reduced fares for airlines,
         vehicles, computers, washing machines, and furniture.
   •	    The most important component of compensation (other than base salary) was housing.

   Assistant directors (discussed in two of three groups)
   •	    Monetary compensation: The groups identified regional allowance for hardship areas, annual increment,
         stipends, supplements, pay in lieu of leave (under the new Civil Service Law), and travel allowance.
   •	    Nonmonetary entitlements: This differed across ministries and departments, such as free housing in
         Nay Pyi Taw, subsidized housing in some regions and states, free transport to and from work in
         some areas, telephones for senior officials, mobile phones and airtime, vehicles and fuel, health care,
         and free lunch in some workplaces.
   •	    Most important components of compensation (other than base salary) were free or subsidized housing,
         transport to and from work, and free health care.
   •	    The groups noted that civil servants may also receive compensation when working on surveys,
         attending training, and attending ceremonies or celebrations held by senior staff. Travel was also
         perceived as a type of compensation.

   GAD (discussed in four groups)
   •	    Monetary compensation: Participants commented on travel allowance, which reimburses for actual cost
         of travel; regional allowance for hardship areas, cost of uniforms; minor expenses for staff who
         go abroad for training, graduate education or meetings; welfare support; allowance when attending
         training; food rations in the rainy season; and cash advances for emergencies.
   •	    Nonmonetary entitlements: These were housing for nonlocal staff, free housing, cars and fuel for
         gazetted officers (depending on rank), motorcycle (in some areas, but not all) or bicycle for staff,
         telephone or mobile phone, and uniforms for office helpers.
   •	    The most important component of compensation (other than base salary), noted in all four groups, was
         housing. One group mentioned motor vehicles, in addition to housing.




                                                                                                                   49
     Base salary and regional allowance as the main monetary components
     of compensation
     73.	     The main monetary components of civil service compensation are base salary and the regional
     allowance for hardship areas. In recent years, the Government of Myanmar has taken a measured approach
     to adjusting the scales for the base salary, and to adjustments of the regional allowance for hardship areas. Table
     4 shows the scales in effect as of late 2016.

     74.	      Some brief explanations can help readers from outside Myanmar navigate table 4. First, unlike
     other countries, Myanmar does not use unique identifying codes for civil service grades. Instead, grades are
     referred to—in both writing and speaking—by stating the minimum, increment, and maximum pay in that
     order (for example, 250,000/4,000/270,000). Second, the job titles in the table are examples only. (A full list of
     job titles per grade as specified in official regulations is available in annex 4.) Finally, the regional allowance scale
     reflects the fact that there are no director general posts, and only a few deputy director general posts (under
     GAD) in hardship areas because Deputy Director General is the highest level in the Region/State GAD offices.


      Table 4:        Base salaries and regional allowances in FY 2015/2016 (MMK per month)


                                                    Base salary                       Regional allowance for hardship areas
         Example job title for                       Section                            From Feb. 2016 onward
              grade                                                                                                            Up to
                                        Minimum      Increment*     Maximum       Fairly hard      Hard         Hardest      Jan. 2016

      Gazetted posts
      Director general                    500,000              --            --            --             --            --            --
      Deputy director general             380,000          4,000      400,000        106,000       112,000       118,000        100,000
      Director                            340,000          4,000      360,000        106,000       112,000       118,000        100,000
      Deputy director                     310,000          4,000      330,000         96,000       102,000       108,000         90,000
      Assistant director                  280,000          4,000      300,000         86,000        92,000         98,000        80,000
      Staff officer                       250,000          4,000      270,000         76,000        82,000         88,000        70,000
      Non-gazetted posts
      Police lieutenant**                 210,000          2,000      220,000         58,000        64,000         70,000        52,000
      Office superintendent               195,000          2,000      205,000         61,000        67,000         73,000        55,000
      Deputy staff officer                180,000          2,000      190,000         64,000        70,000         76,000        58,000
      Upper division clerk                165,000          2,000      175,000         67,000        73,000         79,000        61,000
      Lower division clerk                150,000          2,000      160,000         70,000        76,000         82,000        64,000
      Record keeper                       135,000          2,000      145,000         73,000        79,000         85,000        67,000
      Peon                                120,000          2,000      130,000         76,000        82,000         88,000        70,000


     Sources: MOF Notification No. 12/2016, 16 February 2016 (establishes revised scale for regional allowance); and MOF Notification
     No. 1058/2015, 10 April 2015 (base salary scale and initial regional allowance scale for FY 2015/2016).
     * Increment (step) is awarded every two years.
     ** New grade as of FY 2015/2016, said to encompass about 5,000 staff mostly in Ministry of Home Affairs and some state administrative
     organizations.


50
75.	     For almost all civil servants, these monetary earnings are de facto exempt from income tax. The
2016 income tax law stipulates that, effective from 1 April 2016, earnings under MMK 4.8 million are exempt
from income tax.31 This provision applies to all workers, whether in the public or private sector. Taxpayers also
receive an exemption of MMK 1,000,000 per year for each parent residing with them, another MMK 1,000,000
exemption for a spouse, and a MMK 500,000 per year exemption for each unmarried child under 18 residing
with the taxpayer.

76.	     The base salary scale has been increased in each of the last five fiscal years (see table 5).
The base salary scale alone, however, does not provide a complete picture. A special MMK 30,000 per month
allowance was introduced in FY 2012/2013 and was paid to all civil servants through FY 2014/2015. (This and
other compensation-related measures are shown in table 6.) The new base salary scale for FY 2015/2016 thus
effectively consolidates the MMK 30,000 allowance into the new (higher) base salaries. It is typically considered
good practice to provide the bulk of monetary compensation as base salary, rather than through multiple
allowances that can be complicated to manage or nontransparent.

77.	     The current base-pay scale provides minimal pay progression within a given grade. The
increments, in effect as of FY 2015/2016, mean that gazetted civil servants could achieve, at most, an MMK
20,000 increase in base salary (MMK 10,000 for non-gazetted staff) over the course of 10 years—unless they get
promoted into a higher grade or the Government of Myanmar revises the salary scale. Because the increment is
defined as a fixed kyat amount, rather than as a percentage of base salary, its significance relative to base salary
diminishes as one rises in grade. (That is, MMK 4,000 is a larger relative increase for someone who enters the
lowest gazetted grade at MMK 250,000 than it is for someone in the second-highest gazetted grade, which starts
at MMK 340,000.)

78.	     The regional allowance for hardship areas has been substantially redefined three times in as
many years. The Government of Myanmar initially set it at 100 percent of base salary and then changed to
an interim kyat-denominated scale for FY 2015/2016. In February 2016, this changed again, to the three-tiered
scale shown in table 4.32 While the regulation establishing the new scale states that townships are classified
according to criteria, it does not explain the specific criteria used or the rationale underlying the scale. The
number of townships classified as hardship areas has increased from 87 (in 2012) to 110 (as of 2013).

79.	     The redefinition of the regional allowance reflects careful deliberations led by a government
committee. The committee, chaired by the Ministry of Home Affairs, with numerous other bodies represented,33
has examined the rationale for classifying a location as a hardship area, as well as the kyat amounts to award.
After examining practices in other countries, the committee developed an approach they believed would suit
Myanmar’s particular circumstances. Nevertheless, questions remain as to how best to tackle recruitment and
retention challenges in certain areas, and how to assess whether the various measures are effective.34



31  This is equivalent to MMK 400,000 per month, which means that civil servants from deputy director general downward are exempt
from tax on their base salary. For civil servants receiving the regional allowance for hardship areas, those in the assistant director grade
and below are exempt. See Kyaemon Mirror, 2016, “Clarification on the assessed income tax that falls under the head salaries.”
32  The kyat amounts in the interim scale did not constitute a linear progression, meaning that some lower grades received more than
higher grades. However, when added to the base salary scale then in effect, the result was an orderly progression in total monetary
earnings (base plus regional allowance).
33  The Minister of Home Affairs chairs the committee, with the director general of GAD serving as secretary. As of early 2016,
members included MOPF and the Ministries of Foreign Affairs and National Planning and Economic Development, plus the Border
Affairs minister from the state- and region-level governments. Deputy ministers from the Ministries of Labor, Immigration and
Population; Education; Health; Information; and Communications were also involved in the committee’s work.
34  In March 2016, the World Bank prepared for GAD a note suggesting possible support on a range of issues, including recruitment
and retention in hardship areas. This remains subject to discussion.


                                                                                                                                           51
     80.	     The overall effect of these changes was to increase monetary earnings for all civil service
     grades. In the shift from FY 2014/2015 (base plus MMK 30,000 allowance) to the FY 2015/2016 scale (larger
     base, cancellation of MMK 30,000 allowance), no one lost money in nominal terms.35 The FY 2015/2016 scale
     provides a modest increase for lower grades, with the increase becoming more substantial as civil servants
     move to more senior grades. This dynamic of stretching the difference among lower and higher grades is called
     “decompression.” Civil servants who received the regional allowance also got an increase in monetary earnings
     between FY 2014/2015 and FY 2015/2016 in nominal terms. This increase was modest, however.




     35  “Nominal” means that a value is not adjusted for inflation, in contrast to “real” terms, which are adjusted for the effect of inflation.


52
      Table 5:         Base salary scales for civil servants, FY 2012/2013 to FY 2015/2016 (in MMK per month)


                                                    FY 2015/2016                                FY 2014/2015                              FY 2013/2014                             FY 2012/2013
      Examples of job titles               Min.       Increment       Max.          Min.          Increment     Max.          Min.          Increment    Max.          Min.          Increment    Max.

       Gazetted posts
       Director general                   500,000              --            --    250,000           2,000     260,000       230,000           2,000     240,000      210,000           2,000     220,000
       Deputy director general            380,000         4,000       400,000      220,000           2,000     230,000       200,000           2,000     210,000      180,000           2,000     190,000
       Director                           340,000         4,000       360,000      200,000           2,000     210,000       180,000           2,000     190,000      160,000           2,000     170,000
       Deputy director                    310,000         4,000       330,000      180,000           2,000     190,000       160,000           2,000     170,000      140,000           2,000     150,000
       Assistant director                 280,000         4,000       300,000      160,000           2,000     170,000       140,000           2,000     150,000      120,000           2,000     130,000
       Staff officer                      250,000         4,000       270,000      140,000           2,000     150,000       120,000           2,000     130,000      100,000           2,000     110,000
       Non-gazetted posts
       Police lieutenant                  210,000         2,000       220,000              --            --            --            --            --           --            --            --           --
       Office superintendent              195,000         2,000       205,000      105,000           1,000     110,000        85,000           1,000      90,000       65,000           1,000      70,000
       Deputy staff officer               180,000         2,000       190,000        99,000          1,000     104,000        79,000           1,000      84,000       59,000           1,000      64,000
       Upper division clerk               165,000         2,000       175,000        93,000          1,000      98,000        73,000           1,000      78,000       53,000           1,000      58,000
       Lower division clerk               150,000         2,000       160,000        87,000          1,000      92,000        67,000           1,000      72,000       47,000           1,000      52,000
       Record keeper                      135,000         2,000       145,000        81,000          1,000      86,000        61,000           1,000      66,000       41,000           1,000      46,000
       Peon                               120,000         2,000       130,000        75,000          1,000      80,000        55,000           1,000      60,000       35,000           1,000      40,000
     Source: MOPF notifications for relevant years.
     Notes: 1) In FY 2012/2013, FY 2013/2014, and FY 2014/2015, all civil servants received an “additional allowance” of MMK 30,000 /month on top of base salary.
     2) A new non-gazetted grade added for FY 2015/2016 contains about 5,000 uniformed staff in Ministry of Home Affairs and some state administrative bodies (e.g., police officers, firearms instructors).
     3) The increment (step) is awarded every two years, not every year.
     4) Allocation of positions to levels in the salary scale is done within each ministry and may vary across ministries. Listed positions are examples only.
53
54


      Table 6:       Additional compensation-related parameters for civil servants and others (in MMK)


      Item                                                                               Item                  Item                 Item                 Item
       Permanent secretary salary (director general base salary + MMK 200,000
                                                                                        700,000
       “honorary” allowance under budget line 0102)
       Additional allowance per month for civil servants                               Cancelled         30,000 (continued)   30,000 (continued)   30,000 (established)
       Daily wage for daily wage earners (8-hour day)                                   3,600*                 2,000                1,700                 1,100
       Additional "grant/allowance" for daily wage earners                             Cancelled         1,000 (continued)    1,000 (continued)    1,000 (established)
       Daily wage for daily wage earners in hardship areas                               5,000                   --                   --                    --
       Experts (rehired pensioners) monthly grant                                       250,000               80,000               60,000
       Additional allowance for advisors and experts                                   Cancelled         30,000 (continued)   30,000 (continued)   30,000 (established)
       Official minimum wage per 8-hour work day, as of 1 September 2015                 3,600                   --                   --                    --
       World Bank estimate of monthly earnings by minimum wage worker with a
                                                                                         77,400                  --                   --                    --
       5-day week

     Sources: Rates for government workers are from various MOPF notifications.
     * Starting in December 2015.
81.	     A simplified chart of monetary earnings in the civil service by grade illustrates the most recent
changes. Figure 15 shows the main monetary earnings (base salary and regional allowance), as of the end of FY
2015/2016 compared to FY 2014/2015.36 The chart shows a clear, orderly increase in total monetary earnings
from the lowest grades to the highest grades. This is a positive feature, which some developing countries fail
to achieve.


 Figure 15:      Civil service monetary earnings, 2014-2016




82.	    The vast majority of civil servants are in the non-gazetted grades. As shown in table 7 earlier,
92.4 percent of civil servants in union-level bodies (excluding state or region bodies) were non-gazetted, as of
FY 2015/2016. Gazetted posts comprised only 7.6 percent of the union-level total.




36  The figure shows the midpoint of the base salary range in each grade. For FY 2014/2015, when the regional allowance was set
at 100% of base salary, the figure again shows the midpoint. By the end of FY 2015/2016, the new regional allowance scale included
three tiers (fairly hard, hard, and hardest.) The figure uses the midpoint of that scale for each grade. There are very few deputy directors
general in hardship areas (indicated in the figure by empty outlines), and no director general posts.


                                                                                                                                           55
      Table 7:       Union-level civil service posts by grade, FY 2015/2016


                 Base salary scale                      Sample civil-service job title            No. of posts          % of total
      Gazetted posts
      500,000                                      Director general                                           268              0.03%
      380,000/4,000/400,000                        Deputy director general                                    833              0.09%
      340,000/4,000/360,000                        Director                                                 2,908               0.3%
      310,000/4,000/330,000                        Deputy director                                          7,308               0.8%
      280,000/4,000/300,000                        Assistant director                                      18,279               1.9%
      250,000/4,000/270,000                        Staff officer                                           43,682               4.5%
                                                   Sub-total gazetted                                      73,278               7.6%
      Non-gazetted posts
      210,000/2,000/220,000                        Police lieutenant                                        5,073               0.5%
      195,000/2,000/205,000                        Office superintendent                                   25,564               2.6%
      180,000/2,000/190,000                        Deputy staff officer                                    99,842              10.3%
      165,000/2,000/175,000                        Upper division clerk                                  279,802               28.9%
      150,000/2,000/160,000                        Lower division clerk                                  284,656               29.4%
      135,000/2,000/145,000                        Record Keeper                                           66,433               6.9%
      120,000/2,000/130,000                        Peon                                                  134,626               13.9%
                                                   Sub-total non-gazetted                                895,996              92.4%
                                                    Total gazetted and non-gazetted                      969,274             100.0%

     Source: MOPF and World Bank calculations.
     Notes: Data are from budget form 2C and represent estimates submitted as part of the budget process. Data exclude civil servants at
     region/state levels, estimated at 85,000-90,000 in FY 2015/2016.




     Departments’ provision of in-kind allowances to certain posts and
     locations
     83.	      In some countries, practices related to in-kind allowances or expenses can blur the line
     between operational expenditures and income. Certain in-kind allowances (such as housing) clearly
     supplement monetary income, since they reduce or eliminate the employee’s housing expenses. In other cases,
     in-kind allowances intended to enable work (such as vehicle fuel for field trips) may, in part, be appropriated
     by some individuals for personal activities or monetized informally (e.g., through reselling). When rates for
     operational expenses (e.g., travel per diems) substantially exceed actual reasonable costs, or regulations and
     decisions allow their over-use, these expenditures become informal supplements to income. The precise scope
     of such practices is difficult to determine in any given country. However, governments face a problem when
     substantial amounts of public funds are spent for uses other than intended, or when workers change their
     activities largely for personal gain (e.g., making trips that are not needed, in order to collect the per diem.)


56
84.	    Myanmar officials frequently expressed the belief that in-kind allowances vary substantially
across departments and the perception that this is unfair. Senior stakeholders voiced these views
in meetings, as did civil servants as in focus group discussions (see box 3). No one, however, had detailed
information about the extent to which in-kind allowances differed. In response to these concerns, the World
Bank team conducted research together with its government counterparts. This chapter presents those findings.
(Chapter 5 discusses implications for transparency and equity.)

85.	     The degree of variation is difficult to determine without further study. The Government of
Myanmar provides in-kind allowances to certain civil service posts, in certain locations. The senior management
of each department has the authority to make its own decisions, and practices can differ substantially across
departments. This may well reflect their different mandates and needs (e.g., for travel to facilities away from
the office.) It is possible that the policy is formalized in written regulations or policies prepared by each
department.37 However, officials interviewed for this review noted that they had never seen such documents,
and that employees typically simply know the practices specific to their own department (but not other
departments). Thus, there appears to be a tradition of such practices, but little or no explicit statement on the
objectives (including whether they are intended as compensation to individuals or for operational use), and no
specific rationale for decisions about who receives each in-kind allowance, and no standard for how the items
or amounts are decided.

86.	     Our review systematically collected information about four common in-kind allowances:
vehicles/transportation, fuel for vehicles, housing, and telephone. Working closely with counterparts in
the MOPF Budget Department and the Pay, Compensation, and Human Resources Review Implementation
Inter-ministerial Committee,38 the World Bank team requested 39 departments in 6 ministries and UCSB to fill
in a table for each of these four allowances, specifying formal entitlements for each civil service grade. This
appears to be the first ever attempt in Myanmar to compile this breadth and depth of information.

87.	     Departments shared impressively detailed information. Table 8 summarizes the information that
was submitted.39 Detailed tables for each allowance are presented in the annexes. Readers should bear in mind
the following caveats to avoid misunderstanding what this information represents:

          •	     As stated above, the extent to which these allowances cover operational needs versus serving to
                 supplement income is usually difficult to determine.
          •	     Information refers primarily to posts located in Nay Pyi Taw, the capital city.
          •	     There are some indications that the amount of the formal entitlement may, in some instances, be
                 adjusted before it is issued to the recipient.40
          •	     Entitlements may also vary across individuals in the same grade or job, even within a department.
                 Some departments stated that some individuals in a particular post received housing and fuel
                 allocations, but others did not because the available supply was not sufficient.




37  There appears to be only limited mention of allowances in civil service-wide regulations. The 2013 civil service law establishes
(chapter 4), civil servants’ right to “salary appropriate for labour, skills, and service, stipend, travelling expenses and other allowances”
(paragraph 11c) and to “allowances that are occasionally specified by Pyi Htaung Su Councils of Ministers” (paragraph 11r).
38  The Committee was established by MOF Notification No. 12/2016, 25 January 2016.
39  Information was collected via a written form that was drafted in English and translated into the Myanmar language. Most
departments submitted their responses in Myanmar language, which the team then translated into English. In such circumstances,
misunderstandings are always possible.
40  A senior official in one ministry stated that the fuel allowance actually received, in at least one case, was greater than the official
amount. Separately, a different individual suggested that the entitlement might be reduced.


                                                                                                                                            57
     88.	     Allowances entitlements varied from modest to substantial, as evident from table 8. The
     submitted information shows that most allowances are awarded to gazetted posts and that the value typically
     increases as one rises in grade. Non-gazetted posts in Nay Pyi Taw typically received only housing and, in many
     cases, free commuter transportation to work (usually on special buses). The following paragraphs discuss each
     allowance in turn.

     89.	     In the gazetted grades, management posts are typically assigned at least one passenger vehicle
     and sometimes up to three. Of the 39 departments contacted, 90-100 percent listed a vehicle entitlement
     (car, truck, or van) for the four most senior gazetted grades.41 The data submissions did not specify whether
     these vehicles are intended for work travel by the units or staff reporting to that post, or whether they are
     exclusively for the managers’ use. Similarly, it is not clear whether vehicles are exclusively for work purposes or
     allowed for off-duty personal use as well. Some departments listed vehicle models dating to previous decades,
     which suggests that vehicle standards (and maintenance needs) vary substantially.42 The lower gazetted grades
     seem to be entitled to commuter transportation to work by mini-bus (called “ferry” in Myanmar) or possibly a
     shared vehicle. Non-gazetted grades typically were entitled, at most, to commuter transportation to and from
     work—a necessity given Nay Pyi Taw’s large area and the virtual absence of any public transit. As noted above,
     most submissions did not describe circumstances outside of Nay Pyi Taw.




     41  Vehicles of this sort are still rare in Myanmar and predominantly an urban phenomenon. According to the 2014 census, “38.7
     percent of all households have a motorcycle or moped. About 36 percent have a bicycle and 3.1 percent have a car, truck or van.” Of
     households that have a car, truck or van, 72% are in urban areas (Ministry of Labor, Immigration, and Population, Department of
     Population, 2015).
     42  The Equipment Control Committee, associated with the former Ministry of National Planning and Economic Development, is
     said to handle vehicle issues.


58
     Table 8:     Main in-kind allowances reported by six ministries and UCSB in Nay Pyi Taw, 2016


                                                                 Deputy
                                                                                    Assistant
                                                               permanent
                                                                                   permanent                                   Assistant                                All non-gazetted
                 Job titles           Director general          secretary,                            Deputy director                              Staff officer
                                                                                    secretary,                                 director                                      grades
                                                                 Deputy
                                                                                     Director
                                                            director general
     Base pay grade, FY 2015/2016
                                             500,000        380,000-400,000      340,000-360,000      310,000-330,000       280,000-300,000       250,000-270,000       (no pay range)*
     (in MMK)
     Assigned vehicles per officeholder or commuter transportation entitlement
     No. of depts. submitting data             39                   39                   39                   39                    39                    39                  39
     Percent awarding allowance               90%                  100%                 95%                  92%                   49%                   33%                 26%
                                                                                                                              1 or shared           1 or shared
                                                                                                                            office vehicle or     office vehicle or
     Minimum no. of vehicles                    2                    1                    1                    1
                                                                                                                             commuter bus          commuter bus
                                                                                                                                ("ferry")             ("ferry")
                                                                                                                                                                         Commuter bus
     Maximum no. of vehicles                    3                    3                    2                    1                     2                     1
                                                                                                                                                                           ("ferry")
     Monthly fuel entitlement per officeholder (in gallons) and estimated value (in MMK) at market prices, as of May 2016
     No. of depts. submitting data             38                   38                   38                   38                    38                    38                  43
     Percent awarding allowance               89%                  97%                  95%                  97%                   66%                   11%                  0%
                                       Gal.         Value   Gal.         Value   Gal.         Value   Gal.         Value    Gal.         Value    Gal.         Value
     Minimum                            80       206,392     40       103,196    40        103,196     20          51,598   10           25,799   10           25,799
     Maximum                           240       619,177    180       464,383    60        154,794     45       116,096     59        152,214     32           82,557
     Monthly telephone entitlement
     No. of depts. submitting data             38                   38                   38                   38                    38                    38                  42
     Percent awarding allowance               45%                  47%                  42%                  34%                   16%                    3%                  0%
     Minimum (in MMK)                         10,000               10,000               10,000               10,000                10,000                10,000
     Maximum (in MMK)                         50,000               40,000               25,000               20,000                15,000
59
60


                                                                             Deputy
                                                                                                    Assistant
                                                                           permanent
                                                                                                   permanent                                       Assistant                                 All non-gazetted
                    Job titles                   Director general           secretary,                                 Deputy director                                  Staff officer
                                                                                                    secretary,                                     director                                       grades
                                                                             Deputy
                                                                                                     Director
                                                                        director general
      Housing entitlement per officeholder (Nay Pyi Taw)
      No. of depts. submitting data                      33                      33                     33                     33                      33                     33                      33
      Percent awarding allowance                        85%                    88%                     91%                    91%                     94%                    91%                    82%
      Minimum                                      Apartment;             Shared apt.;            Dormitory or             Dormitory              Dormitory              Dormitory               Dormitory
                                                 some pay 10% of        some pay 10% of          room in shared
                                                      salary                 salary                apartment
      Maximum                                      2-story house,         2 story house,        Apartment, free            Apt., free          House/apt., free       House/apt., free       House/apt., free
                                                        free                some fees



     Source: Department responses to customized form circulated by World Bank and MOPF Budget Department. Fuel values calculated from prices for Nay Pyi Taw posted on https://maxenergy.com.
     mm/ on 11 May 2016.
     Notes: Abbreviations used: “PS” = permanent secretary; “gal.” = imperial gallon; “apt.” = apartment.
     1) Table excludes enterprises.
     2) In addition to UCSB, respondents include MOPF and the Ministries of Education, Labor, Energy, Health, and Home Affairs.
     3) Submitting departments are located in Nay Pyi Taw; allowance entitlements (especially for housing) may not apply to staff outside of Nay Pyi Taw.
     4) Blank cells and departments that did not report data may mean that a) a position does not exist in that department or is vacant, b) there is no allowance for this position, or c) an allowance exists, but
     information was not provided. Departments often provided information only for gazetted positions and left non-gazetted cells blank.
     5) Vehicles may be older models. For example, the Ministry of Labor listed vehicles from the 1990s or early 2000s.
     6) Gallon amounts listed in the table are the sum of diesel and petrol entitlements.
     7) Fuel value is calculated by multiplying the total allocation (diesel + petrol) by the average price of diesel and petrol, converted from liters to imperial (UK) gallons.
     8) In some cases, officeholders receive a fuel allowance, but not a vehicle allowance.
      9) In some cases, departments noted that official fuel allowance is not awarded to all officeholders in practice due to shortages.
     * For non-gazetted officers, the highest grade is paid a flat base salary of 500,000 with no increments, so there is no pay range.
90.	     Most departments also provide vehicle fuel allocations to gazetted posts, although rarely to
the most junior gazetted grade. The fuel allocation is larger for more senior posts and, as with vehicles, also
varies substantially across departments. In some cases, it is reasonable to assume that more than one vehicle
or individual uses the fuel allocation, since the amount of the entitlement exceeds what one driver could use
up in a month. For example, 60 gallons of fuel (the amount allocated by one department to its deputy director
grade, with an approximate value of MMK 155,000) could reasonably enable a car to travel 1,200 miles (1,931
kilometers) or a motorcycle 2,700 miles (4,345 kilometers).43

91.	      The vast majority of civil servants in Nay Pyi Taw receive free housing, but elsewhere
circumstances are very different. This should be understood in the special context of Nay Pyi Taw, since
civil servants were moved there after the capital opened in 2006. An unknown number of civil servants left
family members behind in other locations and may still maintain homes there.

92.	      The type of housing allocated varies not only by department and grade but also by marital
status. Outside Nay Pyi Taw, provision of housing varies significantly.44 A township officer outside
Nay Pyi Taw noted that housing is provided for non-local gazetted staff; however, rent may be charged, for
example, if a different department owns the building. Non-gazetted employees are usually local and continue
to live in their family home. In regions and states, some health-care providers may receive free housing (e.g., in
hospital compounds), but may be required to pay for water and electricity themselves. The housing allowance
in the education sector—the single biggest employer of civil servants, with a workforce of well over 400,000—
is highly variable. Housing is seen as one of the difficulties in attracting and retaining teachers in remote
locations. (Chapter 5 on competitiveness, transparency, and equity of compensation contains further discussion
of housing issues.)

93.	     Mobile phone entitlements are awarded to a smaller proportion of gazetted posts. Of the 39
departments, 34-37 percent reported a telephone allowance for the four most senior grades. This was typically
offered as a pre-paid top-up card, reimbursement of bills, or sometimes as cash. The monetary value is far lower
than for the fuel allowance, typically MMK 10,000-20,000. For the two most senior grades, some departments
offered as much as MMK 40,000 or MMK 50,000.

94.	      As described in the analytical framework earlier in this chapter, intangible factors also play a
role in Myanmar’s civil service compensation. Interviews, as well as focus group discussions, confirmed
that civil service jobs continue to be valued for their stability and prestige. (See box 5 in chapter 5.) Secondary
employment opportunities are available to some staff, notably health and education service providers. Health
care providers are allowed to undertake private work after hours. Teachers may provide after-school tutoring to
small groups of students. In at least one health official’s view, jobs in government facilities are seen as attractive
due to training that is provided, as well as the opportunity to develop one’s skills in treating diverse patients
and conditions. On the other hand, a GAD township officer noted that work demands limit the time available
to work elsewhere. Some highly skilled individuals who retire from the civil service may be asked to serve as
advisors on contract, although this number is thought to be small.



43  Fuel prices obviously vary over time and by location. The MMK 155,000 estimate is based on prices per liter for Nay Pyi Taw
(posted on www.maxenergy.com.mm/, 11 May 2016) and converted to imperial gallons (the unit used in Myanmar and the measure
used in the fuel allocation data.) The distances estimates assume that a passenger car can travel 20 miles on 1 imperial gallon, and that
a motorbike can travel 45 miles per gallon. These levels of fuel economy are fairly typical for 1990s models, as listed in online fuel
consumption guides, such as Natural Resources Canada’s fuel consumption search tool (http://oee.nrcan.gc.ca/fcr-rcf/public/index-e.
cfm) and www.totalmotorcycle.com. (See annex 6 for details of calculation.)
44  Unmarried individuals are often allocated a private room within a shared apartment, while married employees get an apartment
exclusively for their family.


                                                                                                                                        61
     Outdated rates for some operational expenses
     95.	     Expenses payments are, of course, not part of formal compensation, but may be used to
     supplement it if not properly managed. In some countries, rates for certain operational expenses are overly
     generous and poorly controlled. The result is that staff may undertake certain activities largely to collect the
     payments for expenses, not because the activity is needed. Examples include per diem and housing rates for
     domestic or international travel. Problems that have been observed in some other countries include staff making
     overly frequent domestic field trips, to the detriment of fulfilling their responsibilities in the office, and per
     diem rates for official travel to foreign countries far exceeding reasonable benchmarks; both of which obviously
     serve to supplement income. Related problems include poor administrative or managerial procedures (such as
     no requirement for receipts or other necessary documentation for reimbursement, and inadequate oversight of
     travel decisions.)

     96.	     In contrast, Myanmar appears to have a number of expenses rates and regulations that are out
     of date or require re-evaluation to ensure they are effective. Interlocutors cited a number of expenses
     rates that they perceived as inadequate, including a few that were so outdated that the amount mentioned
     is virtually meaningless. One rather extreme example was a “uniform allowance” for nurses of MMK 8 per
     month. Per diem rates for domestic travel were thought to be inadequate for certain, higher-cost locations (for
     example, the city of Mandalay). On a somewhat related note, an official mentioned that an award for excellent
     service exists, but the amount is only MMK 3,000—a sum that may have been appropriate in the past, but is no
     longer. Concerns were also raised about overnight accommodation for official domestic travel.

     97.	     The example of health care providers illustrates the importance of appropriate policies for
     operational expenses. Outreach and service provision to communities (such as immunization programs,
     and pre- and post-natal care for young families) requires site visits by health-care workers. These workers are
     often based in a larger village and are responsible for serving multiple villages within their area. Yet, current
     regulations reimburse only for travel beyond a five-mile radius from the worker’s duty station. Health experts
     consider the official reimbursement rates to be unrealistically low. Combined with other restrictions on certain
     expenses involved in such field visits, this becomes a disincentive to health workers to deliver care to their
     clients.

     98.	    To the Government of Myanmar’s credit, some of these rates are now being reviewed.
     Suggestions for principles to incorporate into such a review are included later in this report.

     Personnel-related expenditures appearing under a number of budget
     lines
     99.	      The expenditures described in this chapter appear in various parts of the budget. Earlier,
     chapter 3 on wage bill and affordability issues discussed the challenges involved in accounting for expenditures
     on compensation of personnel. Like many other countries, Myanmar’s expenditures on monetary compensation
     for civil servants are put in the wage bill line, whereas in-kind allowances and wages of non-permanent staff go
     elsewhere. For clarity, table 9 summarizes Myanmar’s allowance practices.




      


62
 Table 9:         Budget classification lines containing personnel-related expenditures

                                                                                      In-kind allowances and operational
      Expenditure line                  Monetary compensation
                                                                                                   expenses
  01 Pay and allowance honoraria, etc.
 01         Pay                  Base salary for permanent civil servants
                                 (gazetted and non-gazetted)
 02         Allowances           Salaries for ministers and deputy ministers
                                 Allowances paid to permanent secretaries,
                                 advisors, experts and technicians,
                                 academicians, professional secretary officers
                                 Regional allowance for hardship areas
 04         Overtime             Overtime payments to non-gazetted staff
 02 Travelling allowance
 01         Domestic travel-                                                     Domestic travel costs (such as attending meetings or
            ling allowance                                                       workshops, transfers to a post in a different location)
 02         Deputation                                                           Trips abroad on official business (includes airplane
            and delegation                                                       tickets, clothing allowance, and a modest sum per
            expenses                                                             trip for "unexpected expenditure")
  03 Expenses of goods and services
 01         Labor charges        Payments to nonpermanent workers or daily
                                 wage workers; one-time payments
                                 (Also included are, for example, teachers,
                                 drivers, etc., who are hired as daily wage
                                 workers, in contrast to permanent civil-
                                 service staff hires.) Payment to daily
                                 wage workers in the hardship areas shall
                                 be appropriated in accordance with the
                                 regulations set by the Union Government.
 06         Petrol, oil, and                                                     Includes fuel allowance awarded to selected
            lubricants                                                           positions (decided by each department)
 07         Postage, telegram,                                                   Includes telephone and mobile phone allowances
            and telephone                                                        awarded to selected positions (decided by each
                                                                                 department)
 12         Uniform                                                              Includes MMK 20,000 per year to messengers (peons)
                                                                                 Not for all staff. Only for specific staff.
 16         Medical expenses                                                     For police (Ministry of Home Affairs) and staff of
                                                                                 foreign missions (Ministry of Foreign Affairs)
 04 Maintenance charges
 02         Building                                                             Includes maintenance of staff housing (dormitories,
                                                                                 apartments, etc.)
 04         Motor vehicles                                                       Includes maintenance costs for "assigned" vehicles,
                                                                                 commuter buses ("ferry")
  05 Transfer payments
 06         Education                                                            Includes training of new staff, as well as in-house
            training                                                             training
 04         Motor vehicles                                                       Includes maintenance costs for "assigned" vehicles,
                                                                                 commuter buses ("ferry")
  06 Entertainment and meal expenses
 02         Meal expenses                                                        Includes cost of meals provided to staff who work
                                                                                 late during peak periods


Source: Budget classification documents and discussions with government officials.
                                                                                                                                           63
     CHAPTER 5
     COMPETITIVENESS, TRANSPARENCY AND FAIRNESS OF
     CIVIL SERVICE COMPENSATION

     Assessing Myanmar’s civil service compensation
     100.	 Previously, chapter 4 identified four core themes for civil service compensation: affordability,
     competitiveness, transparency, and fairness (equity). Affordability was examined earlier in chapter 3; this
     chapter evaluates Myanmar’s civil service with respect to competitiveness, transparency, and fairness, guided by
     these aforementioned questions:

               •	    Competitiveness: Is civil service compensation adequate, given the economic context? How does it
                     compare to “real world” alternatives? Does civil service compensation help attract and retain the
                     skills that government needs?

               •	    Fairness (equity): Do equivalent jobs receive equivalent compensation?

               •	    Transparency: Is civil service compensation clear and easy to understand?

     These are complex questions in any country. They are particularly challenging to answer for Myanmar due to
     limited availability of data.

     101.	 Some simple ratios are sometimes used to describe and compare civil service compensation.
     These have been popular because they are quick and easy to calculate, which is also why they are superficial and
     can be misleading.

               •	    Base salary to per capita GDP: This is calculated using formal base-salary scales (or by dividing the
                     wage bill by the number of civil servants to estimate average base salary), and then dividing by
                     per capita GDP. However, as explained earlier, compensation comprises more than base salary
                     (and may include monetary and in-kind allowances that are not always classified under the wage
                     bill budget line.) It is not unusual for World Bank studies in other countries to find such a
                     situation.45 Furthermore, the relative importance of these other components of compensation
                     can be difficult to quantify and most certainly varies across countries.46 As a result, using this ratio
                     to make comparisons over time, or to compare one country with others, is problematic.

               •	    Compression ratio: This is roughly understood as the ratio of the salary at the top of the civil service
                     to salaries at the bottom. However, various sources define and calculate it in different ways.47 This


     45  For example, practices in another ASEAN country are described in World Bank, 2010, “Lao PDR Civil Service Pay and
     Compensation Review.”
     46  Users should also bear in mind that estimates of per capita GDP include some uncertainty. In some countries, GDP data may not
     fully capture economic activity, may change rapidly due to economic crisis, or be adjusted for statistical reasons. For years other than
     census years, population figures are projections.
     47  For example, OECD defines it as “the ratio between the medians of the first and ninth deciles of public sector pay levels” (OECD,
     2007, “Towards Better Measurement of Government”).


64
               means that, like the ratio described above, it is difficult to know how accurately the compression
               ratio captures compensation, thus making meaningful comparisons across countries very difficult.
               Furthermore, since countries define their civil service differently (e.g., some include low-level
               jobs, such as cleaners, while others do not), country-specific ratios may be using very different
               denominators. Despite some claims to the contrary, there is no proven “correct” compression
               ratio. A recent article on the World Bank’s governance website explains in more detail why
               compression ratios are unreliable.48

102.	 It would be unwise to use these or other simple ratios as the primary basis for setting policy. A
more insightful approach entails collecting detailed qualitative and quantitative data, and analyzing it to develop
a more complete and nuanced picture. Using multiple methods provides a more complete understanding, since
it can identify issues that any one method alone might miss. It also helps test the validity of findings by seeing
whether information from different methods is consistent or contradictory.

103.	 The review used an array of methods to analyze compensation issues. The main methods are
analysis of nationally representative household surveys (pending at time of writing); analysis of administrative
data regularly collected by a government or submitted specifically for this review; and contextual analysis that
draws upon prior studies and publicly-available information, such as media reports. Finally, in addition to
interviewing individuals who are knowledgeable about the day-to-day functioning of the civil service, the World
Bank team also conducted early-stage qualitative research (see box 3).


Box 3:        Listening to civil servants - pilot focus groups and survey


   Responding to opportunities that arose part way through the review, the World Bank piloted a series of
   focus group discussions and a short written survey. The objectives were to probe civil servants’ views
   about how the civil service functions and what their own experiences as employees were.

   Together with government partners in GAD and the former Ministry of National Planning and Economic
   Development (MNPED), the team organized seven focus groups. In these discussions, small groups of
   civil servants shared their views in a relaxed setting, guided by local facilitators and a set of discussion
   questions. The team also conducted a small written survey to which 190 civil servants responded. The
   focus group discussions and survey were carried out between January and May 2016, and included both
   gazetted and non-gazetted staff. To encourage a spirit of openness, all respondents were promised that
   their responses would be kept anonymous.

   Given the circumstances, neither of these activities was intended to be full-scale, statistically representative
   qualitative research. Instead, they should be understood as pilots that are among the first attempts to
   systematically probe the views of Myanmar’s civil servants. Nevertheless, the findings provide valuable
   insights (including about civil service compensation) and are incorporated into this analysis. They also
   demonstrate the potential benefits that robust, in-depth qualitative research can offer as Myanmar tackles
   civil service and other public policy issues.




48  See W. McCourt and V. Horscroft, 2014, “Compression Ratios in Public-Sector Pay Reform: Time to Decompress the Discourse?”


                                                                                                                             65
     Competitiveness of Myanmar’s civil service compensation
     104.	 It is common for governments to monitor the “competitiveness” of their civil service
     compensation. Having a compensation policy that is sufficient to attract and retain workers with the required
     skills is a common objective for many governments around the world. Indeed, even advanced OECD member
     countries monitor, analyze, and debate on an ongoing basis the extent to which the compensation they offer
     meets this objective.49 Governments commonly use multiple types of evidence to examine whether they are
     attractive employers. This includes quantitative data on the civil service itself (such as turnover rates or the
     numbers of applicants per vacancy), statistical analysis of large-scale surveys, and other market research.
     Qualitative methods (such as written surveys, focus group discussions, and key informant interviews) can also
     provide helpful insights.

     105.	    Internationally, government policy typically does not aim to match private sector compensation.
     It is widely recognized that employment in public service offers a number of advantages that are not always
     found elsewhere. Notable among these are health and pension benefits, job stability, and—for many people—
     the intrinsic appeal of working on public policy or other public sector activities. Even so, in practice it is not
     unusual to find that compensation for public sector jobs, especially at the lower end of the spectrum, exceeds
     what the private sector pays. (This dynamic appears to exist in Myanmar as well).50 In contrast, for more senior
     posts or highly specialized skills (e.g., senior management or information technology experts), the pattern may
     be the reverse.

     106.	 A robust assessment of the competitiveness of civil service compensation in Myanmar
     requires systematic evidence. In discussing civil service issues in Myanmar, it is not unusual to hear people
     express deeply felt opinions that civil service compensation is “too low.” Some individuals describe hypothetical
     improvements that they believe might occur if compensation were increased (e.g., better productivity or a
     reduction in rent-seeking behaviors). Others may cite anecdotes about private sector firms that reportedly
     offer substantially higher pay for jobs similar to those in the civil service (or to a particular individual who
     previously worked in the civil service). While such statements undoubtedly reflect the speakers’ concerns about
     the importance of attracting and retaining human capital for the civil service, there is no systematic evidence
     supporting these assertions.

     107.	 This report provides readers with a systematic analysis of competitiveness issues, within
     certain constraints. As other studies have already noted, Myanmar is an environment where data are often
     scarce, inaccessible, or simply under-utilized. There are several reasons for this. Since records are often kept and
     shared on paper, rather than electronically, extracting and analyzing information can be too time-consuming to
     do regularly. In other instances, electronic data do exist, but may not be routinely shared. Finally, the analytical
     approaches used in this review are new to many people in Myanmar and have not yet been adopted into day-
     to-day practice (even though the underlying data may be recorded and thus available in principle).




     49  For example, the issues facing the US federal government are discussed in S. Condrey, R.L. Facer, and J.J. Llorens, 2014, “The
     Great Government Pay Debate.” An example of Ireland’s process is available in Government of Ireland, 2007, “Report of the Public
     Service Benchmarking Body.”
     50  The phenomenon of higher pay in the public sector is known as the public-sector wage premium. A large volume of literature
     documents the existence of a public sector pay premium in countries around the world, including the pattern described here. For
     analyses of Europe and the United States, see R. Giordano et al., 2011, “The Public Sector Wage Gap in a Selection of Euro Area
     Countries”; and J. Poterba and K. Rueben, 1994, “The Distribution of Public Sector Wage Premia: New Evidence Using Quantile
     Regression Methods.”


66
 Box 4:       Pay and corruption - what is the evidence?


    Economic theories do not provide a unified view on how civil service wages might affect bureaucratic
    corruption, and the many limitations facing “real world” studies preclude a single, definitive answer.
    Robust compensation data that are comparable across countries are in short supply. Corrupt activities
    are, by their nature, often hidden from sight. And, of course, pay is only one of numerous factors that
    shape the working environment and individuals’ behavior.

    Nevertheless, numerous studies have examined this relationship. Three examples illustrate the
    complexities. Readers are encouraged to review each paper in full for a deeper appreciation of the
    methodologies, limitations, and findings, which cannot be summarized easily.

    After Ghana dramatically increased the salaries of police officers (but not other public employees), a
    study probed the impact on police requests for bribes from long-distance truck drivers. Compared to
    neighboring countries where police salaries had not changed, the study found that “…the salary policy
    significantly increased the police efforts to collect bribes, the value of bribes, and the amounts given by
    truck drivers to policemen in total.”*

    Another study examined the creation of semi-autonomous revenue authorities in two African countries,
    which entailed numerous reforms, including improved financial incentives for staff. In the early years
    after the reforms, tax revenues as percent of GDP rose sharply and corruption appeared to decline—but
    these positive developments were reversed within a few years.**

    Using publicly available, national-level data on wages and other variables in 31 low-income countries,
    one study found a statistically significant relationship between civil service wages as a proportion of
    manufacturing wages, on one hand, and corruption levels on the other hand. There was not necessarily
    a causal relationship, however, and the authors also concluded that “higher pay does not lead to lower
    corruption in the short run.” ***

    * J.D. Foltz and K.A. Opoku-Agyemang, 2015, “Do Higher Salaries Lower Petty Corruption? A Policy Experiment on West
    Africa’s Highways.”
    ** O.-H. Fjeldstad, I. Kolstad, and S. Lange, 2003, “Autonomy, Incentives, and Patronage: A Study of Corruption in the
    Tanzania and Uganda Revenue Authorities.”
    *** C. Van Rijckeghem and B. Weder, 2001, “Bureaucratic Corruption and the Rate of Temptation: Do Wages in the Civil
    Service Affect Corruption, and by How Much?”.




Civil service in the context of living conditions in Myanmar
108.	    Many countries use data from living standards surveys to inform their policy-making processes.
Living standards surveys typically interview a nationally representative sample of households and ask detailed
questions about topics, such as education, health care, labor and employment, and household consumption
expenditures. Analysis of these data provides a statistically sound description of living conditions within a
country at a national level, in urban versus rural areas, and in specific geographic areas.51 Such findings are

51  The World Bank and other development partners provide technical assistance to countries that wish to undertake such surveys.
Information on the Living Standards Measurement Study is available on the World Bank’s website at http://econ.worldbank.org/
WBSITE/EXTERNAL/EXTDEC/EXTRESEARCH/EXTLSMS/0,,contentMDK:21610833~pagePK:64168427~piPK:64168435
~theSitePK:3358997,00.html


                                                                                                                               67
     useful inputs to policy deliberations in many government sectors. Specific to the objectives of the civil service
     compensation review, data on average household size and household expenditures on food and non-food items,
     for example, could be used to assess the adequacy of civil service compensation. This type of analysis was done
     in the World Bank’s study of Lao PDR’s civil service.52 In the past, Myanmar conducted several living conditions
     surveys, most recently in 2015.

     109.	 Data from the 2015 Myanmar Poverty and Living Conditions Survey (MPLCS) provide an
     important perspective on living standards within the country, and a basis for putting civil service
     earnings into context. Using a World Bank analysis of data from the 2015 MPLCS, the World Bank team
     further estimated average monthly consumption expenditures (food and non-food items, education, housing,
     and use of durable goods) for households nationwide, as well as separately for urban and rural areas. Table
     10 shows the percentage of household expenditures that a civil service base salary covers, by grade. Data
     underlying these calculations and analysis are provided in annex 9.

     110.	     When reviewing annex 9, readers should bear in mind three important caveats. First, the team’s
     calculations slightly overstate household consumption expenditures. They are based on expenditures per adult
     equivalent, whereas a typical household includes children, whose consumption is lower. Furthermore, household
     size in Myanmar declines with income (non-poor households have fewer members than poor households), which
     suggests that civil servants’ households are likely to be smaller than average. Second, given Myanmar’s high
     labor-force participation rates (discussed later in this chapter), it is reasonable to expect that a household would
     have two or more income earners. Indeed, MPLCS data show that households have, on average, at least three
     members of working age (15-64 years). Thus a civil servants’ salary would not necessarily be expected to cover
     all of a household’s expenditures. Third, MPLCS data show that 15 percent of consumption expenditures at the
     national level (21 percent in urban and 10 percent in rural areas) is allocated to housing. As described chapter
     4, gazetted civil servants typically receive free or subsidized housing, while some non-gazetted civil servants
     (primarily in Nay Pyi Taw) receive a housing benefit. Civil servants’ expenditures are thus reduced accordingly;
     the same applies to any other goods or services that are provided in kind, such as free transportation to work,
     and so on.

     111.	    For the gazetted grades, base salaries cover between 72 percent (for staff officer level) and
     138 percent (for director general level) of average household consumption expenditures, as estimated
     from MPLCS. As is to be expected, they cover a lower percentage in higher-cost urban settings, and a higher
     percentage in rural ones. For non-gazetted grades, base salaries cover between 34 percent (at the lowest
     grade) and 59 percent (at police lieutenant level) of estimated average household-consumption expenditures.
     Individual circumstances vary, of course, and the factors cited in the preceding paragraph (notably, the value of
     any in-kind compensation) must also be taken into account. Yet, it seems from this perspective that civil service
     base salaries are not extreme outliers relative to prevailing conditions in the country.




     52  See World Bank, 2010, “Lao PDR Civil Service Pay and Compensation Review.”


68
 Table 10:       Base salary as percent of estimated monthly household consumption expenditures


                                Base salary                     Average                                    Median
                                (in MMK)         National        Urban          Rural      National         Urban          Rural
 Gazetted posts
 Director general                    500,000         138%            90%             n/a         183%          123%             n/a
 Deputy director general             390,000         107%            70%          140%           143%           96%           161%
 Director                            350,000           96%           63%          126%           128%           86%           144%
 Deputy director                     320,000           88%           58%          115%           117%           79%           132%
 Assistant director                  290,000           80%           52%          104%           106%           71%           119%
 Staff officer                       260,000           72%           47%            94%           95%           64%           107%
 Non-gazetted posts
 Police lieutenant                   215,000           59%           39%            77%           79%           53%            89%
 Office superintendent               200,000           55%           36%            72%           73%           49%            82%
 Deputy staff officer                185,000           51%           33%            67%           68%           45%            76%
 Upper division clerk                170,000           47%           31%            61%           62%           42%            70%
 Lower division clerk                155,000           43%           28%            56%           57%           38%            64%
 Record keeper                       140,000           39%           25%            50%           51%           34%            58%
 Peon                                125,000           34%           23%            45%           46%           31%            51%
Source: World Bank staff analysis of 2015 MPLCS data and review team calculations.
Notes: Base salary is the midpoint of each grade. Household consumption is estimated as average household size x total consumption
expenditures per adult equivalent, and is thus an overestimate since typical households include children, whose consumption is lower.
Total consumption expenditures comprise spending on food, non-food items, education, housing and the value of use of durable goods.



Civil service in the context of “real world” employment conditions
112.	 How does Myanmar’s civil service compensation compare to “real world” alternatives? There
are two basic methods for such comparisons. The first, called the worker approach, compares the earnings
of similar individuals (people of similar age ranges with similar levels of education). This analysis typically
uses data from large-scale, nationally representative surveys. The second method, called the jobs approach,
examines compensation for jobs that are deemed to be similar in content and level of effort required53. This
analysis typically relies on the findings of small surveys of specially selected employers. Such surveys may be
commissioned by employers who wish to determine whether the compensation packages they offer are suitable
for the local market – they may also be commissioned by governments for similar reasons. The jobs approach
requires technical care to ensure that the jobs being compared are truly equivalent in content and effort (and
are not simply similar job titles). Furthermore, biases arise when surveys focus on elite or international firms
(which are often “market leaders” that can afford to offer higher compensation), as opposed to employers that
are more typical of the labor market.


53  For discussion of these two methods, and the findings of a “worker approach” analysis of Indonesia’s civil service, see D. Filmer
and D. Lindauer, 2001, “Does Indonesia Have a ‘Low Pay’ Civil Service?”. Another paper that tackles similar issues applied to the case
of Vietnam is S. Bales and M. Rama, 2001, “Are Public Sector Workers Underpaid? Appropriate Comparators in a Developing Country.”


                                                                                                                                        69
     113.	 To assess the “competitiveness” of Myanmar’s civil service compensation, it is crucial to
     choose realistic comparators. A guiding question asks what individuals might do if they could not (or did not
     wish to) work for civil service. Myanmar’s civil service, with approximately 1 million staff, is one of the most
     important providers of stable, full-time jobs in the country. For many people in Myanmar, the “real world”
     alternative to a civil service post would be work in the informal sector, in small and medium enterprises, or in
     agriculture. The types of jobs included in small-scale benchmarking surveys that have been commissioned by
     elite employers (e.g., multi-national corporations, multi-lateral or bilateral development agencies, international
     non-governmental organizations, or diplomatic missions) are not a realistic work alternative for the vast majority
     of Myanmar’s civil servants. Such organizations offer only a small number of jobs and seek out individuals
     with scarce skills and foreign language abilities. For this reason, analyzing data from a nationally representative
     large-scale survey is presently the most suitable method for comparing earnings and working conditions across
     sectors of the economy.

     114.	 Countries around the world use the labor force survey (LFS) as a valuable source of data
     on employment and earnings. The International Labor Organization describes the LFS as “a standard
     household-based survey of work-related statistics”.54 The survey typically selects a nationally representative
     sample of households and asks questions of each person living in those households. The questions probe each
     individual’s characteristics (e.g., age, gender, and highest level of education completed), as well as details of
     employment status. The employment questions ask for the following information:

               •	    Main type of paid work (if any) that the respondent does
               •	    Sector of the economy where the individual works
               •	    Type of ownership of the place of work (e.g., public, private, joint venture)
               •	    Benefits offered (e.g., pension, paid annual leave, medical)
               •	    Type of contract, whether written or only a verbal agreement
               •	    Duration of the working relationship (e.g., permanent, temporary, seasonal)
               •	    Number of days and hours worked
               •	    Amount of income in cash or in kind the person receives

     The survey also gathers information about any secondary employment that individuals may undertake in
     addition to their main work.

     115.	 After a 25-year hiatus, Myanmar conducted a LFS in 2015. The sample comprised over 24,000
     households (and everyone residing in them) around the country, and asked over 160 questions,
     including the questions above. The plans for the civil-service compensation review included a comparison
     of civil service compensation with conditions in other sectors, based on analysis of the LFS database. However,
     at the time of writing this report, the database had not yet been released and, as a result, this analysis was
     not possible. Once the LFS data become available, the Government of Myanmar may wish to undertake the
     analysis itself.

     116.	 In the absence of LFS data, this report uses other sources to place the civil service in the
     broader context of Myanmar’s labor market and economy. The guiding questions ask what the labor
     market looks like, what work opportunities exist, and how workers outside the civil service are treated.




     54  As of October 2016, the International Labor Organization’s website listed LFS reports for over 170 countries and territories. Some
     countries conduct LFS on an annual, quarterly, or monthly basis, while other countries conduct it less frequently.


70
117.	 Myanmar’s labor market is dominated by informal employment. Almost 71 percent of workers
are in the informal sector,55 and over 50 percent of the labor force is employed in the agriculture sector.56 Many
workers face tenuous labor conditions, as documented in studies and in the media.57

118.	    At present, only public sector workers receive pension benefits. The only workers in Myanmar
who receive pension benefits are civil servants and other government-affiliated workers in state economic
enterprises, the defense sector, and political personnel. This group constitutes less than 5 percent of the
population.58

119.	    Workers in the formal private sector are covered by a contributory social security scheme. The
existing scheme covers medical care and provides cash payments in case of workplace injury, death, maternity
or paternity, and illness.59 The 2012 Social Security Law includes provisions for expanding coverage to informal
sector workers in the future, but the details are yet to be worked out. For civil servants, Civil Service Rules 2014
stipulates various types of leave for illness, maternity or paternity, disability, and other conditions (see annex 2).
Medical care appears to be provided to civil servants in some (not all) government bodies or certain geographic
locations.

120.	 Myanmar’s first-ever minimum wage took effect on 1 September 2015, after lengthy negotiations.
The official rate of MMK 3,600 per 8-hour day applies to all sectors, but according to the notification 2/2015
on 28th August 2015, not to businesses that employ fewer than 15 workers.60 The new minimum wage has
inspired controversy. Some factory owners claimed it would be unaffordable and called for a boycott, while
workers’ groups feared that they would see little gain because employers would reduce or eliminate other, more
discretionary, components of compensation.61 Many workers continue to earn less than MMK 3,600 per day
or have unstable incomes.62 However, since many workers want to earn more than MMK 3,600 per day, the
national committee on minimum wage is reviewing the current official rate.




55  World Bank, 2015b, “Strengthening Social Security Provision in Myanmar.”
56  World Bank, 2015c, “Realigning the Union Budget to Myanmar’s Development Priorities: Myanmar Public Expenditure Review
2015.”
57  See, for example, World Bank, 2016a, “A Country on the Move: Domestic Migration in Two Regions of Myanmar.” In spring
2016, reporting on labor issues by The Global New Light of Myanmar and the Myanmar Times newspapers included a march by factory
workers seeking better conditions, an Arbitration Council ruling of abusive treatment at a steel factory, and accusations of widespread
violations of labor laws by garment factories.
58  World Bank, 2015b, “Strengthening Social Security Provision in Myanmar.” The pension scheme for these workers is a non-
contributory, defined benefit plan: workers do not pay into it, and their pension is calculated as a percentage of their final salary.
Although the 2012 Social Security Law mandates the creation of a contributory pension scheme for private sector workers, this appears
to be some way off, since its parameters have yet to be decided.
59  Ibid.
60  Reuters, “Myanmar sets $2.80 daily minimum wage in bid to boost investment,” 29 August 2015. The minimum wage was seen
as particularly important to promote investment in the garment industry, which has been expanding rapidly. In December 2015, the
Government of Myanmar raised the rate for daily wage earners employed by government bodies to MMK 3,600 to match the minimum
wage.
61  Myanmar Times, “New minimum wage sees workers sacked and struggling,” 31 August 2015.
62  For example, female laborers on flower farms were paid MMK 2,000 per day, while men earned MMK 3,000 (The Global New
Light of Myanmar, “Maymyo flower growers flourish,”14 March 2016). A self-employed vendor selling coffee in a downtown Yangon
market earned between about MMK 3,000 and MMK 7,000 per day, according to a profile in Myanmar Times, “Keep calm and sell
coffee: Mobile vendor meets market demand,” 20 May 2016.


                                                                                                                                      71
     121.	 In contrast, the lowest civil-service grade earns substantially more than a minimum wage
     worker. The lowest civil service base salary is MMK 120,000 per month (FY 2015/2016), whereas a minimum
     wage worker would earn an estimated MMK 77,400 per month at the official rate of MMK 3,600 per eight-hour
     day. This estimate assumes 4.3 weeks per month and 5 days per week. (In reality, while government workers
     have a 5-day, 40-hour work week, non-civil servants typically work 5.5 days or possibly longer.) Figure 16 shows
     civil service monetary earnings (base salary, regional allowance), compared to those of a minimum wage worker.


     Figure 16:    Civil service monetary earnings compared with minimum wage worker, 2014-2016




     122.	 This finding is consistent with the earlier observation that lower-level (or less-educated)
     workers are often better off in the public sector. Since 13.9 percent of union-level civil service jobs are
     in the lowest grade, this group of beneficiaries is substantial. More broadly, as the analysis in chapter 4 shows,
     over 90 percent of civil service posts in union-level bodies are in the non-gazetted grades. It is thus important
     to understand what employment prospects the individuals in these grades are likely to have outside the civil
     service. Data from the labor force survey may help shed light on this.

     123.	 More detailed comparison of civil service compensation with the rest of the labor market will
     have to wait until LFS data are released. The exact analysis that is possible will depend upon the specifics of
     the Myanmar dataset. However, based upon studies in other countries, a worker approach analysis of LFS will
     provide data by sector or type of ownership, and for individuals with similar education levels. This data includes
     average monetary earnings from the primary, full-time job; percent of workers who receive paid annual leave;
     percent of workers who receive paid sick leave; percent of workers whose employment status is permanent,
     temporary, or seasonal; and percent of workers who undertake secondary employment in addition to their
     primary full-time job.




72
Ability of the civil service to attract and retain skills
124.	 The level of interest that individuals show in gaining (or retaining) civil service employment
gives some insight into the civil service’s attractiveness as an employer. As mentioned earlier, for this
reason, many countries commonly track turnover rates and other data on human resources. These dynamics
reflect multiple factors, of which compensation is only one. Nevertheless, they are valuable indicators. For
example, a high turnover rate can suggest that individuals are leaving the civil service for better opportunities
outside of government. Low numbers of qualified applicants for advertised job openings in the civil service
may also indicate that a civil service career holds little appeal.

125.	 This report examines Myanmar’s situation from three different perspectives. First, the analysis
sought out routine administrative data on personnel issues. Second, civil service managers, whose long careers
give them insight into workplace dynamics, were interviewed. Third, the views of “regular” civil servants were
obtained via the survey and focus group discussions.

126.	 Ministries routinely collect data on personnel movements, but standard personnel indicators
do not appear to be available. Each department within a ministry prepares a monthly report that lists
total staff numbers at the start and end of the period, the number of staff who left the civil service by
reason (resignation, retirement, dismissal, death, and other), and internal movements (i.e., transfers from one
department or government body to another). These reports are submitted to a unit within the former MNPED
and, in principle, could be used to regularly monitor civil service-wide indicators, such as turnover rates. Such
monitoring would enable the Government of Myanmar to detect changes in its ability to attract and retain staff.
However, the World Bank team was unable to ascertain whether any such government-wide data and indicators
are regularly generated.

127.	 In order to calculate indicative turnover rates, the World Bank team requested 12 months
of these reports from a sample of departments. Turnover rates are calculated by department, separated
by gazetted versus non-gazetted staff. (The results are presented in full in chapter 6 on human resource
management.) Overall, the data reveal that voluntary resignations are at a low level, with some differences
across departments. Retirement is by far the major reason for individuals to leave the civil service. Table 11
presents data for the nine departments (in the sample) that employ at least 1,000 staff. The resignation rates
were under 1 percent in seven of these nine departments, both for gazetted staff and non-gazetted staff.




                                                                                                                73
      Table 11:         Turnover in a sample of nine departments with at least 1,000 staff, 2015-2016


                                                                                             Total
                                                                                                      Resig-
                                                                                            depar-                              Net
                                                Resign-     Dis-      Retire-                         nations      New
            Department            Total staff                                    Deaths      tures                             trans-
                                                 ations    missals    ments                           as % of      hires
                                                                                            as % of                             fers
                                                                                                       staff
                                                                                             staff
      Gazetted staff
      Internal Revenue                    888         2          3         34          3        4.7        0.2         84          80
      Customs                             242         2          0          5          0        2.9        0.8         23          20
      Labor Affairs                       813        22          0         26          3        6.3        2.7         66         152
      Social Security Board               347        13          0         11          1        7.2        3.7         52          16
      Immigration and                     723         5          0         36          5        6.4        0.7             1      334
      Population
      Higher Education                 11,075        27          1        191         25        2.2        0.2        139       2,429
      Training and Vocational             825         3          0          5          0        1.0        0.4             0      152
      Education

      Basic Education                   6,553         0          4        489         23        7.9        0.0             0    1,162
      GAD                               1,461         2          6         29          2        2.7        0.1        262          35
      Non-gazetted staff
      Internal Revenue                  3,404        18          3         42         13        2.2        0.5        507         -75
      Customs                           1,452        12          7         25         12        3.9        0.8         26         -17
      Labor Affairs                     2,877        52          7         45          8        3.9        1.8             3     -109
      Social Security Board             1,784        20          4         29          5        3.3        1.1             3      -70
      Immigration and                   5,740        40         13         57         36        2.5        0.7         25        -345
      Population
      Higher Education                 13,215        63          8        113         36        1.7        0.5        293       -2,462
      Training and Vocational           2,902        14         11         12          5        1.4        0.5             0      -51
      Education
      Basic Education                 407,221       428        117      5,122        778        1.6        0.1     59,670       -1,077
      GAD                              31,800       297         54        408        117        2.8        0.9        867        -259

     Source: Monthly reports from each department and World Bank calculations.
     Notes: Data cover the 12-month period, October 2015-September 2016. Total staff is the average of employment at the start of each
     month. Net transfers equals transfers in from other government bodies minus transfers out to other government bodies.


     128.	 The World Bank team’s discussions with several civil-service managers also confirm that
     departures are at a modest level. Not surprisingly, dynamics appear to vary by sector or department, and
     by grade. For example, officials within a department of the Ministry of Commerce noted that gazetted grades
     see little turnover, while non-gazetted staff are more likely to change jobs. The perceived reasons were that
     some individuals might accept non-gazetted jobs as a “stepping stone,” since experience in a well-regarded
     department enables them to pursue better opportunities (whether a gazetted post or a job in the private sector.)
     Interestingly, these officials believed that the FY 2015/2016 increase in the base salary scale had led to fewer
     departures because compensation now compared more favorably to private sector offerings. A township
     education officer remarked that it was rare to see teachers leave other than for health reasons or retirement. A

74
manager in the Ministry of Health noted that, although private practice might offer higher salaries, the public
service offered more interesting opportunities for professional development. The nuances that these examples
demonstrate are one more reason why regular analysis and monitoring of turnover—not only by department
but also by grade and profession—would serve the Government of Myanmar well.

129.	 Finally, despite challenges, survey and focus group respondents value their civil service status,
and most would recommend a civil service career to others. Participants in the focus group discussions
perceived substantial advantages to being a civil servant, while also sharing diverse views about the adequacy (or
inadequacy) of their income and the factors that motivate individuals to join or leave the civil service (see box
5). Despite its limited sample size, the written survey presented a very clear message. Although 87 percent of
respondents believed that one civil servant’s compensation alone was not sufficient to support an entire family,
88 percent had not made serious efforts to find work elsewhere in the past 12 months so as to leave the civil
service, and 73 percent would recommend to other people that they seek a job in the civil service. (See annex
10 for detailed results for these survey questions.)

130.	 These findings require careful interpretation. For one thing, a better question may have been
whether a civil servant’s income could cover half of a family’s basic needs, since—according to
Myanmar’s 2014 census—85.2 percent of males aged 15-64 years and 50.5 percent of females aged
15-64 years are in the labor force.63 Furthermore, compensation is not the only consideration influencing
these attitudes. Focus group members also mentioned factors, such as job stability, dignity, a perceived lack of
opportunities outside of government, and other views related to an individual’s specific circumstances. Despite
drawbacks, it seems that civil service jobs are currently considered attractive by many people. Of course, this
may change over the medium to long term, as the economy develops and work opportunities in the formal
private sector become more plentiful and appealing. The Government of Myanmar would be well advised to
collect further evidence (both qualitative and quantitative) through additional research and monitoring in future.




63  See Ministry of Labor, Immigration, and Population, Department of Population, 2015. The overall proportion of the population
aged 15-64 years in the labor force is 67.0%. The 2014 census also found that 64.4% of the population aged 15-64 years is employed:
81.9% of males and 48.4% of females.


                                                                                                                                  75
     Box 5:       Competitiveness and adequacy of compensation - perceptions from focus group discussions


       Directors (discussed in two of three groups)
       •	     In one group, reasons mentioned for why people join the civil service included salary and benefits;
              dignity; pension; ‘not-rich, but not-poor’ lifestyle; and lack of other opportunities. In the other
              group, compensation was mentioned as an important reason, but respondents also felt that health-
              care benefits, subsidized housing, and the travel allowance should be increased. Pride and dignity
              were also important.
       •	     Reasons not to join the civil service included higher salaries in private business and the perception
              that the private sector paid according to ability, while the civil service paid according to rank and
              position. In the other group, participants were not sure how much they would earn in other sectors
              for similar responsibilities. Even if pay were higher, other sectors would offer less job stability than
              the civil service.
       Directors plus deputy directors (one group)
       •	     Compensation was adequate for basic living needs for mid- to upper-level gazetted officers only. Pay
              might cover half of a family's expenses. Compensation of non-gazetted officers was sufficient only
              for one person, covering only a small portion of family expenses.
       •	     To earn extra income, civil servants might run a shop from their home, sell things at the office, do
              additional work outside of their job, or rely on support from family. Some engage in behavior that
              breaks the rules.
       •	     Reasons for quitting the civil service included running one’s own business or working for a company
              (to earn more money), and other factors.
       •	     If participants were not civil servants, options included working in their own business, for a non-
              governmental organization, or abroad. They felt strongly that they could earn more money elsewhere.
       Assistant directors (three groups)
       •	     Reasons people join the civil service included pension, compensation, benefits, and lack of enough
              money to start a business.
       •	     Reasons not to join included higher pay in the private sector.
       •	     Generally, they felt compensation was not a major factor in attracting people to the civil service.
              Compensation was not sufficient to support more than one person, so people would need to find
              extra work, in addition to their civil service jobs.
       •	     Compensation was enough for a single person. It was not enough to support a family or parents,
              younger siblings, and other dependents.
       •	     If a family had two or more children in school (higher education), then even two incomes were not
              enough.
       •	     Civil servants could supplement their earnings by selling things, operating a car or motorcycle taxi,
              sewing, or tutoring.
       •	     One of the main reasons people leave the civil service was the opportunity to earn a higher income
              in other sectors.

       GAD (four groups)
       •	     Reasons people join included job security, stability, dignity, better compensation than in other
              sectors, pension, lack of other opportunities, regular income, and overall stability of life.
       •	     Reasons not to join included low income, income insufficient to raise a family’s standard of living,
              separation from families if assigned to hardship areas, and no other income sources.


76
Fairness and transparency of civil service compensation
131.	    This report discusses fairness (equity) and transparency together, since they are closely related.
The concept of equity, or fairness, is often explained simply as “equal pay for equal work.” When compensation
frameworks are not transparent (i.e., important components of compensation vary in value for reasons that
are hard to determine, or some forms of compensation are hard to discern), it is obviously difficult to examine
whether they achieve a reasonable degree of equity. However, the very condition of lacking transparency makes
it possible for practices to arise that are not equitable, whether by intent or simply by circumstance.

132.	 As described in chapter 4, the two main monetary components of compensation (base salary
and regional allowance) are clearly regulated, for the most part. Progression up the base salary scale is
orderly, with earnings in each higher grade always greater than in the adjacent lower grade.64 In FY 2015/2016,
an MMK 30,000 allowance, introduced three years earlier, was consolidated into the new base salary scale,
which improved the transparency of monetary compensation (although it also increased the Government’s
future pension liabilities.) The scale for the regional allowance for hardship areas increases progressively with
each higher gazetted grade. For non-gazetted grades, the scale favors lower grades, which receive larger amounts
than do higher non-gazetted grades. (See table 4 in chapter 4 for the FY 2015/2016 scales.) This appears to
reflect a conscious decision to increase the earnings of non-gazetted civil servants, who constitute the bulk of
civil service posts. Nevertheless, total monetary earnings (base salary plus regional allowance) for non-gazetted
grades still increase progressively with each higher grade. An additional transparency-related point is that the
criteria used for classifying locations as hardship areas, and for determining in which of the three hardship
levels an area belongs, are not stated in the regulation that establishes the scale and, to our knowledge, are not
publicly available.

133.	 The minimal within-grade pay progression could also be seen as unfair or un-competitive,
in broad terms. As discussed in the previous chapter, the modest size of increments to base salary means
that individuals see little growth in earnings over time, barring promotion to a higher-grade position or an
adjustment to the entire base salary scale. Furthermore, higher-grade jobs (and workers with more “on the job”
experience) get a smaller relative increase in pay, since the kyat-denominated increment represents a smaller
percentage of base salary. While people generally welcome any increase in their earnings, the prospect of only
minimal pay raises over a 10-year horizon may weaken motivation.

134.	 Other types of financial benefits get less attention. Like other workers in Myanmar, civil servants
receive generous income tax exemptions (described earlier). It is possible that some civil servants benefit from
other privileges that offset their cost of living, whether to a lesser or greater degree. In a modest example, in
2016, during the busy travel period of the annual Thingyan water festival, private bus companies were required
to sell a certain number of seats on each bus to civil servants at regulated prices.65

135.	    Non-monetary allowances are far more variable and discretionary than monetary compensation.
As discussed in chapter 4, it has been observed in other countries that in-kind allowances may be de facto
compensation (in part, and under certain circumstances), as opposed to serving purely to enable work activities.
The dividing line can be difficult to establish, but the issue is pertinent to Myanmar. Individual departments
make their own rules about which positions receive in-kind compensation (such as free or subsidized housing,
vehicles, petrol, and telephone allowances.) Readers can get a sense of the variation across departments from


64  This assessment excludes any sector- or department-specific monetary allowances that may exist and also assumes that equivalent
jobs are classified as the same grade level.
65  See The Global New Light of Myanmar, “Special bus tickets available for government staff during Thingyan water festival,” 15
March 2016.


                                                                                                                                  77
     table 8 (chapter 4), which summarizes practices in six ministries and UCSB. More detailed tables for each
     allowance are available in the annexes. The World Bank team was not aware of any centralized documentation
     about these department-level decisions. As a result, it is not easy to know the full compensation package that is
     provided to different positions and to individuals working in different departments.

     136.	 Focus group discussions and the survey are consistent with this assessment. Focus group
     participants noted that monetary compensation was mostly clear. However, they remarked that in-kind
     allowances varied across (or even within) departments. Some said that it depended on the manager, and that
     clearer rules were needed (see box 6). In the written survey, only 31 percent of respondents said that it was
     easy to understand the compensation (both monetary and in kind) for different civil service jobs; 40 percent
     said it was not easy; and the remaining 28 percent did not know, did not answer the question, or gave multiple
     answers. (See annex 10 for details.) Interestingly, a higher percentage of gazetted staff stated that it was not easy
     to understand. This may reflect their greater experience with in-kind allowances which, as explained earlier, vary
     substantially across departments and are awarded primarily to gazetted (rather than non-gazetted) staff.

     137.	 The case of housing allowances illustrates the difficulty of understanding who benefits from
     in-kind compensation and by how much. In 2016 alone, a number of government bodies announced plans
     to build what were described as “affordable” or “low cost” housing units for sale or for rent, with government
     workers among the priority beneficiaries.66 In addition, existing rental units owned or managed by government
     ministries or departments were allocated to civil servants, often by lottery because of the large numbers of
     interested people.67 It is difficult to ascertain the number of civil servants who access housing through such
     initiatives, however. Clearly, the benefit to those who are able to purchase or rent such a unit is substantial,
     since large numbers of people seek out these opportunities. The value to individuals, however, is also difficult
     to estimate because it requires assessing local supply and market prices for similar units, among other factors.68

     138.	 Access to government housing has also been the subject of well-publicized controversy in
     some cases. For example, units in a development in the city of Mawlamyine in Mon State that were intended
     for sale to civil servants were instead reportedly purchased by business people and rented out.69 Large numbers
     of apartments built in Yangon by the Government of Myanmar in past decades as subsidized rental housing for
     military personnel and civil servants have reportedly been transferred informally to other tenants, sometimes
     for significant sums of money. A government official suggested that this problem arose, in part, due to weak
     supervision by the responsible government authorities.70 The media have also covered concerns about more
     recent developments.71

     66  Newspaper reports of new construction announcements include, for example, the Ministry of Education’s plan to build 55 “staff
     quarters” and 264 apartments in remote areas in FY 2015/2016 and FY 2016/2017, respectively; 420 apartments in Mandalay region
     with priority given to teachers; and a multi-purpose development in Yangon with housing for Myanma Railway staff (The Global New
     Light of Myanmar, “Education Ministry vows to give priority to building staff quarters for teachers,” “Priority given to educational staff
     for low-cost housing,” and “High-rise car parking and hotels to be built on Myanma Railway land,”11 August 2016). An unspecified
     number of apartments being completed in southeast Yangon will be available to staff of the Inland Revenue Department (Myanmar
     Times, 3 May 2016, “Inland Revenue tackles its own corruption”).
     67  Newspaper reports of completed housing government bodies include, for example, 400 units for sale by the city of Mandalay
     to civil servants with 25 years of service, which received over 9,000 applications; and a lottery for current and retired civil servants to
     allocate 64 rental apartments in Mawlamyine township in Mon state (The Global New Light of Myanmar, “The first affordable housing
     rolled out in Mon State,” 8 August 2016).
     68  Indicatively, the “low cost” apartments built by the Mandalay City Development Committee for sale to civil servants were expected
     to sell for MMK 13.5-16.5 million (The Global New Light of Myanmar, “Priority given to educational staff for low-cost housing,” 11
     August 2016). A separate newspaper article probing the unofficial transfers of residency in government-built apartments to third parties
     describes official rents that are substantially below market rates (Myanmar Times, “Govt signals crackdown on unauthorised occupants
     of state-owned apartments,” 15 March 2016).
     69  The Global New Light of Myanmar, “The first affordable housing rolled out in Mon State,” 8 August 2016.
     70  Myanmar Times, “Govt signals crackdown on unauthorised occupants of state-owned apartments,” 15 March 2016.
     71  Myanmar Times, “Construction ministry targets source of housing request leak,” 22 March 2016.


78
 Box 6:        Transparency and equity - Perceptions from focus group discussions


    Directors (discussed in one of two groups)
    •	    Most respondents said that compensation system was easy to understand. Some said it was not
          transparent and that there was bias and discrimination.
    •	    Some participants thought their compensation was fair; others did not.
    •	    Monetary compensation may be fair, but non-monetary compensation varies. It depends on the
          department head, the specific ministry, and the workplace location.

    Directors plus deputy directors (one group)
    •	    Non-monetary compensation varies across departments, sometimes even within departments. Some
          departments provide lunch or food and supplies for the home, while other departments cannot.

    Assistant directors (discussed in two of three groups)
    •	    Compensation for the same amount of responsibility may be different in different workplaces. Base
          salary, overtime pay, travel allowance, daily allowance, and accommodation rates may differ.
    •	    Respondents did not perceive salaries and benefits as fair. People with the same type of job, roles,
          and responsibilities may be compensated differently. It depends on the person who is in charge.
    •	    The compensation system is not transparent. There are no specific rules and regulations, so it
          depends on the manager's discretion. There is a need to have clear rules for different levels and
          clarity about compensation of civil servants at union, region, and state levels.
    •	    Participants wanted managers to be fair in assigning responsibilities and compensation/benefits to
          staff. They wanted the relevant authorities to give clear guidelines and instructions.



139.	 A less visible factor related to equity has to do with the classification of jobs into grades. Large
employers in advanced economies use job evaluation and job families to create a systematic framework for the
different types of jobs they offer. Definitions and practices differ somewhat across employers, but in general
the terms refer to the following arrangements and processes. A job family is “a group of jobs involving similar
types of work and requiring similar training, skills, knowledge, and expertise.”72 Job families that contain many
types of jobs may be further sub-divided into specializations.73 Job evaluation is a process to assess the relative
value of jobs within the organization, measured against explicit criteria. Job evaluation takes into consideration
the content of job descriptions74 for the jobs that are being evaluated, among other things. (See box 7 for a
more detailed explanation.) Overall, this enables the employer to rank jobs according to their value, relative
to each other (from lower relative value up to higher relative value), and also to understand which jobs have
equivalent value, even though they may be in different job families or specializations. Positioning jobs in the
grading system on this basis is fundamental to fairness, as expressed in the phrase, “equal pay for equal work.”


72  Definition from the Massachusetts Institute of Technology human resource website, which has a clear explanation and example
at http://hrweb.mit.edu/compensation/job-evaluations/job-families. Examples of other organizations’ guidelines and practices can
easily be found through an online search.
73  For example, a job family for health care providers might be further divided into physicians, nursing, and so on. A job family for
financial services might be divided into specializations, such as accounting, budget, etc.
74  A job description is a concise written document that describes for a particular job its responsibilities, activities, reporting
arrangements, and the competencies required of the job holder. In Myanmar, the term “job description” is often misunderstood to refer
to an organizational chart (a diagram that displays the structure of an organization, its key positions, and its reporting arrangements).


                                                                                                                                        79
      Box 7:        Understanding job evaluation


         Job evaluation is a process for defining the relative worth of jobs within an organization. It is independent
         of the process of setting pay scales.

         Job evaluation has a number of purposes:
         •	    Understanding the duties of each job are, using written job descriptions
         •	    Providing a rational basis for the design and maintenance of a fair and transparent pay structure
         •	    Helping manage the relativities existing between jobs in an organization
         •	    Enabling fair and consistent decisions on grading and rates of pay, both now and in the future
         •	    Enabling comparisons of the worth of different jobs, so that equal pay can be provided for work
               of equal value

         Job evaluation employs these common methods:
         •	    Job ranking: This is accomplished using job descriptions or job titles. Evaluators consider each job as
               a whole and rank it order, based on their sense of what is fair. The result is a table that ranks jobs
               from highest to lowest.
         •	    Paired comparisons: Each job is compared as a whole with each other job in turn. Points (0, 1, or 2)
               are awarded according to whether the job’s overall importance is judged to be less than, equal to, or
               more than the other jobs.
         •	    Job classification: The number of grades is decided first, then detailed grade definitions are produced.
               For each grade, representative (benchmark) jobs are evaluated to validate the definitions. After that,
               other (non-benchmark) jobs are assigned to grades, based on the relevant grade definitions.

         There are more complex methods for job evaluation that are more time consuming. An example is
         “points rating,” which breaks down each job into a number of factors (e.g., skill, responsibility, and effort)
         and assigns points to each factor. The total number of points indicates that job’s worth. Comparing the
         points for different jobs gives an idea of their relative worth.



     140.	 Although Myanmar appears to have a basic system of job families, the rationale underlying the
     grading structure is not evident. Provisions in Civil Service Rules 2014 imply the job families and hierarchical
     structure shown in table 12. In the course of the review, it was not entirely clear how this is used in practice and,
     particularly, what criteria and processes determine how jobs are assigned to specific grades. While robust job
     descriptions are an important part of job evaluation, the use and coverage of job descriptions in the Myanmar
     civil service appear to vary significantly, as discussed in chapter 6 on human resource management. It is common
     in other countries to have guidelines that describe the features for each grade, such as the competencies or level
     of responsibility of jobs that are classified into that grade.75 It is not clear that such guidelines exist (or are used
     effectively) in Myanmar. Indeed, the types of job titles that are grouped together in the same grade suggest a
     wide range of skill and responsibility levels.

     75  The specific way job guidelines are developed depends on each country or organization’s needs and approach. However, as
     a simple, illustrative example, a lower-level grade might be described as containing jobs that involve carrying out routine tasks that
     are repetitive and that do not require sophisticated skills. This might be accompanied by more detailed parameters for the required
     knowledge and competence, complexity of tasks, level of decision-making responsibility, and any supervisory component. A high-
     level grade for senior managers might be described (overall) as requiring the ability to plan and lead a large government division. More
     detailed parameters would then describe the knowledge and competence required, complexity, and so on.


80
 Table 12:      Job families implied in Civil Service Rules 2014


                                                                  Administra-
       Base salary
                                               Administrative        tive                                               Office
         scale,                 Professional                                           Technical        Clerical
                                                (economic)       (management                                           support
      FY 2015/2016
                                                                  and social)
 500,000
 380,000/4,000/400,000
 340,000/4,000/360,000
 310,000/4,000/330,000
 280,000/4,000/300,000      Professional 5     Administrative     Administrative
                                               (economic) 4      (mgmt &
                                                                 social) 3
 250,000/4,000/270,000      Professional 4     Administrative    Administrative
                                               (economic) 3      (mgmt &
                                                                 social) 2
 210,000/2,000/220,000      -                  -                 -                 -                -              -
 195,000/2,000/205,000                                                             Technical 5      Clerk 4
 180,000/2,000/190,000      Professional 3     Administrative    Administrative    Technical 4      Clerk 3
                                               (economic) 2      (mgmt &
                                                                 social) 1
 165,000/2,000/175,000      Professional 2     Administrative                      Technical 3      Clerk 2
                                               (economic) 1
 150,000/2,000/160,000      Professional 1                                         Technical 2      Clerk 1        Helper 3
 135,000/2,000/145,000                                                             Technical 1                     Helper 2
 120,000/2,000/130,000                                                                                             Helper 1

Source: World Bank synthesis of information in Civil Service Rules and Regulations 2014, table 1.
Note: Level numbering in this source is the reverse of the Union Government amendment of the “Job Titles of Government Officers
and Employees” (Announcement Order No. 23/2015, 19 March 2015), which uses 5 for the lowest level and 1 for the highest.


141.	    Having a suitable grade structure is especially important to the health and education sectors.
There are several reasons for this. First, these sectors deliver vital services to the public. Second, they constitute
an important share of public employment and the wage bill in Myanmar, just as in many other countries.
(Chapter 3 on affordability presents overall sectoral data, table 13 shows employment numbers in key health-
care providers, while table 14 looks closely at the different job levels, with number of staff and compensation
within each, in Myanmar’s basic education system.) Third, due to the nature of professions in these sectors,
an individual may spend an entire, decades-long career in the same line of work (e.g., teacher, nurse, midwife,
and physician). Encouraging and recognizing the value of skill development over time requires providing
opportunities for promotion within the same profession, accompanied by increases in earnings.




                                                                                                                                  81
     Table 13:      Health workers by function, 2013-2014

                                 Job title                                       Staff (preliminary actual)
      Doctors                                                                             31,542
          Public                                                                          13,099
          Co-operative and private                                                        18,443
      Dental surgeon                                                                       3,219
          Public                                                                            782
          Co-operative and private                                                         2,437
      Nurses                                                                              29,532
      Dental nurses                                                                         357
      Health assistants                                                                    2,062
      Female health visitors                                                               3,467
      Midwives                                                                            21,435
      Health supervisor (level 1)                                                           652
      Health supervisor (level 2)                                                          4,998
      Traditional medicine practitioners                                                   6,963
          Public                                                                           1,048
          Private                                                                          5,915
      Total                                                                               104,227
     Source: MOH website, www.moh.gov.mm; most recent data is as of November 2016.



     142.	 The case of teachers in Myanmar’s basic education system (primary, middle and high schools)
     illustrates this point. Myanmar’s teachers must (and do) move to teaching higher grades in order to see any
     substantial increase in earnings. For example, as table 14 shows, primary school teachers who start at a base
     salary of MMK 150,000 will reach the maximum earnings potential in 10 years. With a pay increment of MMK
     2,000 awarded every two years, this maximum salary is only 6 percent higher than the starting salary. These
     teachers will get no more pay increases (unless the entire salary scale is adjusted) for the rest of their careers—
     unless they become school heads or move to teaching middle or high school students. Middle school teachers
     face a similar incentive. At the top of the system, a high school teacher’s maximum base salary is only 5.6
     percent higher than the bottom level (applied to a teacher who has just started their career) of the same grade.




82
Table 14:        Teachers and school heads in basic education, FY 2015/2016

                  Job title                                Number of posts                                Base pay grade,
                                                          (budget estimates)                             as of FY 2015/2016
  Gazetted staff
  High school head                                                1,788                               250,000/4,000/270,000
  Middle school head                                              2,520                               250,000/4,000/270,000
  Non-gazetted staff
  High school teacher                                             34,059                              180,000/2,000/190,000
  High school teacher (PE)                                        1,268                               180,000/2,000/190,000
  Middle school teacher                                           78,668                              165,000/2,000/175,000
  Middle school teacher, junior                                    448                                165,000/2,000/175,000
  Middle school teacher 2                                         45,850                              165,000/2,000/175,000
  Middle school teacher (PE)                                      1,337                               165,000/2,000/175,000
  Primary school head                                             34,343                              165,000/2,000/175,000
  Primary school teacher                                         135,646                              150,000/2,000/160,000
  Total                                                          335,927
Source: Department of Basic Education, budget estimate forms for FY 2015/2016.


143.	 The most striking feature in Myanmar is the very modest growth in teacher’s earnings within
a given level of the education system. It is not unusual in other countries for teachers of higher grades to
earn more than teachers at lower levels of the education system. However, within a given level of an education
system, teachers see substantial growth in earnings over the course of their career, which is not the case in
Myanmar.76 As discussed in chapter 7 on education, this means that teachers are motivated to move to higher
grades as soon as they can, leaving teachers with the least experience to teach primary school students. As of
2016, the Ministry of Education is considering possibilities for addressing this problem by developing a better
career path, including a separate base-pay scale for teaching staff.

Managing compensation and recommendations for the way forward
144.	 This section recommends policy and technical measures, based on the preceding analysis of
compensation issues. The review was launched in response to the Government of Myanmar’s request for
analytical support. Thus the overarching objective has been to provide the best possible analysis and bring to
bear international practice and expertise. This approach reflects a fundamental value: policy decisions should
be informed by robust evidence. It is up to Myanmar’s policy makers to weigh that evidence, take account of
any other considerations, and make the choices that best serve the country’s needs.

76  For example, in most—but not all—OECD member states, teachers at higher grades of a school system earn more than those at
lower levels; the degree of such pay difference varies across countries. However, within a given level of the education system, a teacher
who reaches the top of the scale in the course of a career will earn substantially more than the starting salary for that level. According to
the OECD, teachers at the top of the scale in primary education and lower secondary education earn 70% more than the starting salary
for that level, on average; teachers at the top of the scale in upper secondary education earn 68% more than the starting salary for that
level (OECD, 2016, “Education at a Glance 2016: OECD Indicators”). In countries where it takes several decades to reach the top of
the scale, the difference may be even greater.


                                                                                                                                            83
     145.	 Since budgetary resources are always limited, expenditure choices inevitably involve trade-
     offs. Spending more on one item means having fewer resources to spend on other needs. Figure 17 illustrates
     three fundamental trade-offs around civil service compensation and employment policies. First, the wage bill is
     a significant part of every country’s budget and must be managed with a view to other competing expenditure
     needs (such as supplies for essential services and infrastructure). Second, adjustments to pay scales entail a
     choice between targeted adjustments (e.g., to any grades that are proven to be undercompensated, with resulting
     difficulties in attracting and retaining staff) versus a general, across-the-board increase to the entire pay scale.
     The third trade-off is between using limited funds to employ a large number of workers versus potentially
     financing higher pay levels for a smaller work force.

     146.	 While pension issues were outside the scope of the review, readers should bear in mind that
     Myanmar’s pension system amplifies these trade-offs. Under the current noncontributory, unfunded
     system, pensions are paid directly from the budget. Thus, every increase to pensionable components of
     compensation represents an additional claim on the budget in future years, when current civil servants retire
     and begin to draw their pensions. Any increases in the number of civil servants would also increase pension
     liabilities in future budgets. Furthermore, the Government of Myanmar’s recent practice has been to increase
     the pensions that are paid to current retirees whenever the base salary scale is updated, which has an immediate
     impact on the budget.


     Figure 17:     Trade-offs - Expenditures and compensation




                                                               Wage
                                                           expenditures
                                                              versus
                                                        other expenditures




                                 Across the board
                                                                                  Higher pay
                                     increases
                                                                                    versus
                                       versus
                                                                                  more staff
                                 targeted increases




     Source: World Bank, 2016b, “Wage Bill Modeling for Myanmar,” presentation.




     147.	 The Government of Myanmar is well aware of the need for pension reform and has sought
     technical advice from the World Bank and other partners. One of the practical barriers to designing
     reforms, however, has been the lack of reliable data on individual employees. Such data are a key input to
     the actuarial analyses that ensure that the system’s design is financially sustainable. Chapter 3 lays out the
     considerations involved in creating integrated personnel and payroll systems that would generate such data.


84
Recommendations for the immediate to near terms
148.	 RECOMMENDATION 5.1: Analyze LFS and the living conditions survey to gain nuanced
insights into the adequacy and competitiveness of civil service compensation, and to monitor
developments over time. Earlier sections of this chapter described how large-scale survey data are used
to assess the competitiveness and adequacy of government compensation, including a “worker approach”
analysis. This is a standard methodology applied in OECD countries, as well as in developing economies.77
The review’s plans to analyze LFS data for Myanmar were suspended because data from the 2015 LFS had
not been released at the time of writing. Once the 2015 LFS data are released, the Government of Myanmar
could conduct the analysis on its own or with international guidance. Skilled statisticians can carry out such
an analysis with relative ease, following the methodology described in working papers and other publications.78
Since it is expected that Myanmar will conduct these types of large scale surveys periodically in future, this
report recommends that the Government arrange for such analyses to be done for each future round of LFS,
as well as for living conditions surveys.

149.	 RECOMMENDATION 5.2: Review the rationale for in-kind allowances to establish clarity
about objectives and parameters. The main in-kind allowances (vehicles, fuel, housing, and telephone)
appear to be awarded primarily to supervisory and managerial posts in the gazetted grades, which constitute a
relatively small, yet important, portion of the civil service. To the extent that these allowances may be intended
to supplement earnings (rather than service the direct operational needs of a particular unit), this constitutes a
highly variable and discretionary element in the compensation packages for these posts—particularly since the
leadership of each department decides the amounts that are awarded and the posts or individuals that receive
them. If the Government’s aims include compensating civil servants in an equitable, transparent manner, then
such a review would be worthwhile. It could commence in the near term, although reaching a decision for the
way forward (and implementing it) may take a year or longer. Such a review would examine these fundamental
issues:

         •	    What purpose is each in-kind allowance meant to serve? In the course of the review, it was generally not
               evident whether the objective was a) to supplement individuals’ compensation packages, b) to
               enable the unit’s work duties to be carried out, or c) a mix.

         •	    What is the rationale for providing an item “in kind” rather than in monetary form? If intended to be part
               of an individual’s compensation package, are there valid reasons to provide it in kind, rather than
               in monetary form (which provides greater clarity)?

         •	    Should in-kind allowances be assigned to a post or individual, or be incorporated into the operational resources
               available to the relevant unit? If the objective is to enable a unit’s work, is there any rationale for
               defining it as an allowance for a post or individual, rather than as part of the operational resources
               for that unit?
         •	    What degree of variation across departments or units is justified? Do the missions and operational needs
               (such as service delivery) of particular units require higher budgets for transportation (e.g., for
               agricultural outreach) and so on? Do current practices reflect operational needs or are they driven
               primarily by access to revenues?



77  Such reports can be found online. Examples for Ireland, Canada (province of Ontario), and the US federal government are listed
in the references for this report.
78  See Filmer and Lindauer, “Does Indonesia Have a 'Low Pay' Civil Service?” (2001); and World Bank, 2010, “Lao PDR Civil Service
Pay and Compensation Review.”


                                                                                                                                 85
               •	     How cost-effective are existing arrangements and are there more efficient options? This is pertinent especially
                      to vehicles, given the cost of operating and maintaining large fleets of cars.79

               •	     What would be the financial implications of any changes? If indeed in-kind allowances supplement
                      income (in whole or in part), then such income is currently nontaxable and nonpensionable.
                      Converting any or all of the allowances into monetary income would affect the individual’s income
                      tax obligations, their future pension earnings, future government pension liabilities, and possibly
                      other related costs. These implications would need to be evaluated.

     150.	 It is up to the Government of Myanmar to specify the mechanism for getting this review done
     well. One possibility is to take an approach similar to deliberations around remote-area employment concerns
     and the regional allowance. That is, the Government could convene a committee comprised of key stakeholders,
     including MOPF, which should be involved in issues that have fiscal implications. The committee would set the
     agenda, arrange for the necessary technical analyses to be carried out, and propose recommendations.

     151.	    This process would produce guidelines that stipulate the justification, criteria, and the kyat
     amounts for any allowances that continue to be associated with posts. Together with other compensation-
     related regulations, such guidelines could be compiled on a website or, as needed, in printed materials. Such
     online dissemination of civil-service compensation parameters is common practice. For example, the federal
     governments of the United States and Canada have extensive websites where laws and regulations are posted,
     along with explanatory texts and other guidance about compensation and the terms and conditions of civil
     service employment.80 The information is openly accessible to the public, with no user registration required.

     152.	 RECOMMENDATION 5.3: It would benefit the Government of Myanmar to begin
     systematically monitoring its ability to recruit and retain the skills that it needs, where it needs them.
     Earlier sections of this chapter described the array of tools that governments use to evaluate the suitability
     of the compensation they offer, which is one of numerous factors affecting their ability to attract and retain
     staff. As described in box 8, monitoring indicators are one such tool. The Government of Myanmar does
     not currently conduct such targeted monitoring, although it routinely collects data that could be used for this
     purpose.81




     79  Other countries have struggled to rein in the managerial and cost burdens of vehicle fleets, which have over time become entrenched
     and vulnerable to misuse or waste.
     80  For Canada’s federal public service, see the pay, pension, and benefits website, which provides “information about rates of
     pay, collective agreements, leave provisions, pension plans, and benefits for the public service,” at www.canada.ca/en/government/
     publicservice/pay.html. For the US federal government, see www.usa.gov/benefits-for-federal-employees.
     81  Each department currently prepares a monthly report on the number of staff who left the civil service by reason (e.g., retirement,
     resignation, etc.), as well as transfers to other government bodies. These could easily be used to calculate turnover rates, as this report’s
     authors did.


86
Box 8:         The value of monitoring indicators


    Achieving effective policies requires understanding what is working, as well as what is not. Without a
    doubt, the insights that staff and managers gain through their work provide important perspectives on
    issues and potential solutions. Examining the experiences of other countries (via country cases, rigorous
    research, and multi-country analyses) is also valuable. Yet diagnosing the size and shape of a problem,
    and understanding the actual impact that a particular intervention has, also requires objective data.

    Monitoring indicators can help by providing information that is specific, current, and comparable over
    time. Indicators can focus on specific concerns. For example, the ability to retain staff with certain skills
    or in certain geographic locations could be tracked by calculating the turnover rate (number of staff who
    leaves, relative to total staff) by reason and location.

    The indicator should be calculated at an interval that provides meaningful information and enables a
    timely response. Depending on the specific issue, this might be every quarter, every six months, or once
    per year. The formula for calculating each indicator should be clearly defined and applied in the same
    way every time, so that the results can be compared over time or across locations. Indicators that are too
    general or poorly calculated will not be helpful.


153.	 This is especially pertinent to the Government of Myanmar’s concerns about how to attract and
retain certain categories of staff to “hardship areas.” Senior GAD officials emphasized that, although
aware of practices in some other countries, they believed these could not easily be applied in Myanmar’s
specific circumstances. Instead, they have preferred “home grown” approaches, including the recent rounds
of adjustments to the regional allowance for hardship areas. Whatever the approach, the question is how policy
makers and managers know whether these policies and practices are having the desired impact. Bearing in mind
that compensation in general and the regional allowance in particular are just part of the appeal of civil service
postings, systematic monitoring would at least provide hard data to incorporate into these deliberations.

154.	 A small set of focused indicators would help the Government of Myanmar monitor and refine
its compensation and human resource management policies. Putting this into practice would involve
identifying a body to be responsible for calculating and distributing indicators at suitable intervals. Details
(including formulas) would be worked out consistent with the principles described in box 9. As noted above,
some indicators could be calculated from data already in hand, while others may require revising existing data
collection practices or adding new reporting requirements. The following indicators would be worthwhile:

          •	    Ability to retain staff: Monitoring indicators include a) percentage of positions that are vacant by
                type of position, geographic location, and so on)82; b) average number of months that employees
                (also by type of position) remain in a job or geographic location, such as a hardship area; and c)
                turnover rate by reason (i.e., the number of staff who leave their job due to resignation, transfer,
                retirement etc., as a percentage of the total employed in that type of post or location).

          •	    Ability to attract the requisite skills: Potential monitoring indicators include a) number of people who
                apply for each advertised job opening, and b) number of qualified people (meeting the specified
                requirements for the job) who apply for each advertised job opening.

82  Vacancy rate calculations will be meaningful only if the government of Myanmar revises its policy regarding the official establishment
level. This would mean replacing the current practice that prohibits bodies from filling more than 2/3 of their official number of posts,
with a new, realistic establishment number that bodies are entitled to fill.


                                                                                                                                         87
     155.	 RECOMMENDATION 5.4: Review and update rates for the operational expenses that
     enable staff to do their jobs. Expenses, such as transportation costs for site visits or per diem for domestic or
     international business trips, are not part of an individual’s formal compensation and should not be seen as such.
     However, as discussed earlier, rates that are too low or too high can create perverse incentives. For example, a
     health-care worker might visit a patient less often because transport expenses are not adequately reimbursed
     or, conversely, staff might undertake more business trips than needed in order to collect overly generous per
     diems. From this perspective, rates that are too low are a waste of a government’s human resources, since civil
     servants are hindered from doing their work effectively. (Rates that are too high also waste budgetary funds
     and reduce the effectiveness of civil servants’ work.) Furthermore, when rates for operational expenses are
     inadequate, the risk increases that development partners who fund projects will introduce their own allowances
     in an uncoordinated fashion, thereby further distorting work incentives. This dynamic is evident in a number of
     countries, notably Cambodia, and is difficult to reverse once it has taken hold.83 It is thus important to set rates
     that are appropriate and to ensure that they are updated over time, when necessary.

     Box 9:        Adjusting to reality: Reforming operational expenses to improve service delivery


        Reforming operational expenses that enable staff to do their jobs could have a direct bearing on services
        in the health sector. Under budget line 0201, frontline health-service providers (such as midwives and
        health assistants) are entitled to claim travel allowances, provided that the services delivered take place
        more than five miles away from their duty station.

        This rule distorts the incentives for front-line service providers to serve areas inside the five mile limit.
        Moreover, the allowed travel rates are either outdated or set at the discretion of the GAD township
        administrator. The rates are not sufficient to cover actual operational expenses, and this might discourage
        midwives and health assistants from visiting remote areas. In addition, claiming travel allowances under
        budget line 0201 requires filling out several tedious forms and gaining clearance before and after
        travelling, even for very small amounts. Another budget line related to travel, 0306 (for petrol, oil, and
        lubricants), also deserves review and revision. As it stands now, basic health staff cannot claim the cost
        of petrol incurred during the course of delivering outreach services in the community, unless the vehicle
        in question (mostly motorbikes, in this case) is registered as property of the Ministry of Health. In
        most instances, the motorbikes are personal property of the health staff who, in the absence of public
        transport option in their areas, must use their own resources to deliver core public health services.

        Another operational cost worth revisiting is the coverage of phone bills, regulated under budget line 0307.
        Because only government-owned land-line phones are covered, a midwife using a mobile phone cannot
        be reimbursed for top-up charges, even though mobile connections in Myanmar are rapidly expanding
        and offer huge opportunities to advance flexibility and timely consultation in emergency cases. Mobile
        phones are a crucial tool, in light of these facts: there are 13.4 million women of reproductive age. On
        average, 282 mothers die due to pregnancy-related causes for every 100,000 live births. Furthermore, on
        average, 62 children per every 1,000 live births do not live to see their first birthday.

        All these rules might seem trivial. Yet, streamlining and rationalizing the rates and rules for operational
        expenses could have a profound impact on service delivery. Obviously, increased flexibility and discretion
        in operational costs should be supported by efficiency and accountability measures, such as auditing and
        disciplinary actions, to counter any potential for abuse to take place.


     83  For Cambodia’s case, see B. Nunberg and R. Taliercio, 2012, “Sabotaging Civil Service Reform in Aid-Dependent Countries: Are
     Donors to Blame?”.


88
156.	 Such reviews of operational expenses would follow a few guiding principles. The Government
of Myanmar has recently updated a few expenses rates and would benefit from continuing this activity. A few
guiding principles, listed below, can also help. Given that each sector has its own dynamics (e.g., patterns of
health-care delivery in rural areas) that need to be taken into account, it will be important for sector experts to
play a leading role in these reviews. Additional suggestions for how to approach such a review are presented in
annex 11, “Developing appropriate rates and regulations for operational allowances.”

          •	     Rates should be sufficient to cover reasonable duty-related expenses, but should not be excessive.84
          •	     All proposals should be costed to ensure that they are affordable within the budget.
          •	     Administrative and oversight procedures should be effective enough to prevent abuse, but not so
                 burdensome that compliance requires excessive staff time.
          •	     Rates should be reviewed periodically to ensure that they remain appropriate as price levels change
                 over time.

Medium to long-term options
157.	 RECOMMENDATION 5.5: In the next round of LFS, the Government of Myanmar could
include more detailed occupation codes to enable more nuanced comparisons. Since analysis of LFS is
a valuable source of insight into how civil service compensation compares with other sectors (including private
employers), more detailed occupation codes will make it possible to do more detailed comparisons. This will be
especially important as the economy and the labor market develop over time, and certain skills become more
highly sought after (and potentially harder for the Government to attract and retain.)

158.	 RECOMMENDATION 5.6: The Government of Myanmar could conduct a focused review
of the criteria for each level of the jobs grade structure, and check that jobs are properly allocated to
grades. A grading structure that is well managed and appropriate for the various types of careers within the
civil service is one of the foundations for managing human resources, along with an equitable pay system that
recognizes the relative worth of jobs and facilitates professional advancement. There are questions about how
effective Myanmar’s current grading structure is at 1) ensuring that jobs with a roughly equivalent assessed value
are grouped into the same grade (which should be above jobs that are deemed to have a lower value, and below
those with a higher assessed value); and 2) facilitating a career path, especially for service delivery professionals
in education and health.85 Some of these features are nominally present in Myanmar’s civil service, although
there are obvious shortcomings (e.g., the partial structure of job families implied in the Civil Service Rules 2014;
job descriptions of variable quality for some posts, as described in the human resource management chapter;
and the poor fit with the needs of the basic education system). The existing structure has remained in place for
decades, despite its limitations, and has become entrenched. But if Myanmar’s objective is to improve fairness
in compensation and HRM, and to provide career paths that encourage and reward staff for building their skills
and delivering quality services, then there is room for improvement.


84  Information to guide domestic rates can be found with relative ease. For international travel, it may be helpful to examine rates
used by other countries or organizations. Although these may exceed what the Government of Myanmar wishes to offer, such rates can
serve as a guide, and a ceiling that should not be exceeded. Per diem rates for the United Nations and the US federal government can
be found online.
85  As described earlier, typically, a large employer (e.g., government, university, or corporation) has explicit parameters for each grade
that describe the types of jobs (not simply job titles) within a given grade, as well as a system of job families. This is accompanied by
written job descriptions that establish the requirements and responsibilities for individual jobs. These job descriptions can serve multiple
purposes: to guide recruitment of suitably qualified individuals, to orient jobholders to their roles, and to give structure to performance
evaluations.


                                                                                                                                           89
     159.	 Such a review would be of limited scope, with a pragmatic approach that focuses on basics.
     The starting point would be to clarify the parameters (criteria) that define each grade, and if these do not
     yet exist, to develop clear, written criteria for each grade. The second part would be to verify whether the
     current classification of individual jobs into grades makes sense—with respect to these criteria—or needs
     to be adjusted (i.e., whether some jobs belong in a different grade than where presently classified). Another
     part would examine the within-grade base salary increments to ensure that these provide a meaningful and
     systematic progression in pay, as discussed below.

     160.	 The emphasis, however, should be on a basic review with limited scope, not a lengthy (and
     expensive) exercise. This review would also identify any other grading-related needs that may need to be
     addressed, plus a work program and timeline for addressing them. For example, there may be a need to devise
     more meaningful job descriptions for some posts.

     161.	 Devising appropriate grading and compensation regimes for education and health-service
     providers will require sector-specific expertise. These two groups are obviously important, not least because
     they account for almost half of Myanmar’s civil service as currently defined.86 Furthermore, these sectors and
     the service delivery jobs within them have specific characteristics that need to be taken into account.87 Indeed,
     many countries regulate education and health services separately from “white collar” office work for these
     reasons. Sectoral experts and their development partners will need to play leading roles in ensuring that these
     needs are met. In the education sector, some deliberations are already underway. In health, decisions about
     how health-care providers are compensated will have to be explored as part of complex decisions about health
     sector financing (e.g., whether facilities and providers are paid based on a specified fee for a given type of
     service, a per capita sum for each patient who registers to receive care at the facility, other methods, or a mix
     of various methods.)

     162.	 After the grading criteria and job classifications have been reviewed and adjusted, the next
     step will be to set salary ranges that are suitable for each grade, while also staying affordable given
     the budget. This would include the initial base salary for each grade, as well as the size of the within-grade
     increments that are awarded, which may benefit from redesign.88 Increments should be large enough to represent
     a meaningful progression in pay, without being excessive. In addition, they should represent a systematic
     increase in base salary. In contrast to Myanmar’s system of defining increments as a fixed currency amount
     (MMK 4,000 for gazetted and MMK 2,000 for non-gazetted posts, as of FY 2015/2016), pay scales elsewhere
     define the increment as a fixed percentage of base salary. For example, the increment might be calculated as 1.5
     percent of the current base salary, so that its relative importance (as a percentage of base salary) is the same for
     all individuals, regardless of how long they have been in the job or other factors.

     163.	 Any revisions to salary scales require that proposed salary ranges be subjected to rigorous
     fiscal impacts analysis. Such testing should also include sensitivity analysis, to probe the impact of unexpected
     developments (e.g., if hiring exceeds expectations; if large numbers of daily wage workers are hired as temporary




     86  As of 2015, education accounted for 40.0%, and health for 7.4%, of all civil servants employed at union, region, and state levels,
     based on CSO data of actual employment.
     87  For example, facilities such as hospitals need to provide services 24 hours a day, so staff may work in shifts (e.g., nights or days).
     Teachers not only work hours teaching in the classroom but also preparing lessons, correcting students’ work, assessing students and
     communicating with parents.
     88  In the current base-salary scale, in-grade increments, awarded every 2 years, vary between 1% and2% of the starting base salary
     in each grade. Since increments are defined in nominal kyat terms—MMK 2,000 for non-gazetted posts and MMK 4,000 for gazetted
     posts—the relative “weight” of the increment as a percentage of base salary decreases in importance as workers rise in grade.


90
teachers and later converted to civil service status; and so on). Pension costs would also need to be considered.
This type of fiscal impacts analysis should be conducted whenever changes to the base salary scale are being
considered.

164.	 The wage bill forecasting model could be used for such fiscal impacts analysis. In addition to
the civil service-wide model described in chapter 3, the World Bank team also developed a more detailed model
for the Ministry of Education’s Department of Basic Education (DBE). The DBE-specific model enables
forecasting employment and costs for each job title (not simply by grade), and was reviewed with DBE staff
who also participated in training sessions for the civil service-wide model. With updated data and some modest
adjustments, it could be used to test proposals for changes to teacher employment or for a teacher-specific
grading structure, if the government wished to explore such an option. Subject to the availability of data and
interest, customized models could also be prepared for any other sectors, such as health.

165.	 RECOMMENDATION 5.7: Until the formal labor market is more developed, a jobs-based
survey offers no advantage to the Government of Myanmar. Jobs-based surveys aim to compare similar
jobs, rather than similar workers. However, they have considerable methodological limitations and are expensive
to implement. Above all, they are best suited for economies with a well-developed formal labor market, where
the civil service is just one among many appealing career paths.89 Given the Government’s current position as
a leading employer in the formal labor market and the lack of evidence of a “brain drain” of skills to other
employers, this type of exercise should be deferred.




89  In countries with a large informal or agricultural sector, an individual’s “real world” alternative to a civil service job may not in fact
be the same type of job in the private sector, but rather, informal work. For example, the case of Vietnam and “real world” alternatives
to formal employment is described in Bales and Rama, 2001, “Are Public Sector Workers Underpaid?”.


                                                                                                                                             91
     CHAPTER 6
     MANAGING HUMAN RESOURCES FOR BETTER
     PERFORMANCE

     Introduction
     166.	 Strengthening human resource functions and adhering to the principle of merit within the civil
     service have a discernible impact on public sector performance. Around the world, such an approach has
     led to a positive effect on economic growth,90 poverty reduction,91 control of corruption,92 and service delivery.93
     In this context, the review also analyzed Myanmar’s core human-resource functions. A review of the civil
     service legislation was undertaken and the actual practices assessed through focus group discussions and a small
     survey of civil servants (see annex 10).

     167.	 Sixteen focus groups, involving 148 gazetted and non-gazetted officers, were asked to discuss
     the key binding constraints for increasing work performance in the Myanmar civil service. Discussions
     with ten focus groups of 100 non-gazetted officers and six focus groups of 48 gazetted officers, all in the
     Myanmar civil service, were conducted in late 2015.94 The quantitative survey was conducted among 190 non-
     gazetted and gazetted officers. (See annex 10 for a summary and analysis of the survey.) The data from these
     two sources, along with existing background surveys and studies of the Myanmar civil service system, form the
     backbone of this chapter, which looks at these core areas (see figure 17) of HRM functions:

               •	   Human resource planning involves determining future human resource needs and job requirements to
                    ascertain the overall staffing needs of the public sector in general and each specific organization.
               •	   Recruitment and selection induces qualified applicants to apply for work in the organization in order
                    to select the most competent applicants to fill the vacant posts.
               •	   Deployment is the movement of staff from one work assignment to another, to meet the operational
                    needs of the organization.
               •	   Retention refers to the ability of the organization to retain its competent staff and the degree to
                    which the current employees remain with the organization over a given time period.
               •	   Performance management and appraisal is the process of communicating the organization’s performance
                    expectations to its employees and assessing the performance of the employees’ work quality,
                    outcomes, and future work potential.
               •	   Promotion is the appointment of a current employee to a position in a higher salary range (with
                    increased responsibilities) than the one to which the employee is currently assigned.



     90  P. Evans and J.E. Rauch, 1999, “Bureaucracy and Growth: A Cross-National Analysis of the Effects of ‘Weberian’ State Structures
     on Economic Growth.”
     91  J. Henderson et al, 2002, “Economic Governance and Poverty Reduction in South Korea.
     92  C. Dahlström, V. Lapuente, and J. Teorell, 2009, “Bureaucracy, Politics, and Corruption.”
     93  World Bank, 2003, World Development Report 2004: Making Services Work for Poor People.
     94  The World Bank team also provided training to 32 focus group discussion moderators and assistant moderators from the Institute
     of Development Administration, GAD, and the Institute of Graduate Studies for Administration and Development.


92
Figure 18:    Framework for diagnostic assessment of the Myanmar civil service HRM system




                                                  Human Resource
                                                     Planning




                 Recruitment &                       HRM                              Performance
                   Selection                      Performance                          Appraisal




                                  Deployment &
                                                                       Promotion
                                    Retention



Source: Adapted from W. McCourt and D. Eldridge, 2003, Global Human Resource Management.




Human resource planning and human resource systems
168.	 Human resource planning is critically important to ensure that the right staff with the
appropriate competencies is deployed to positions and areas of strategic priority. Human resource
planning should correspond to the development objectives of a country and be driven by a strong analytical
base to guide policy making.

169.	 Currently, Myanmar’s overall human resource planning is governed by a policy that allows only
two-thirds of vacancies to be filled. This policy started in the period of the State Peace and Development
Council (previously, the State Law and Order Restoration Council)95 to restrain the growth in the public wage
bill. In 2010, however, the policy was relaxed for certain parts of the government, including GAD and the
Ministries of Education and Health, to fill vacant positions at the township level, depending on the existing
workload.

170.	 Human resource planning is managed at the department level in each ministry, and there
is no ministerial-wide strategic unit managing this function. While there are administrative units in the
ministries, they are mostly in charge of managing human resource records and do not provide strategic analysis
or input into human resource planning. The Ministry of Health is one of the first ministries to set up a focused
HRM unit and could serve as an example to other ministries.




95  GAD Record, 2010.


                                                                                                               93
     171.	    Human resource planning in Myanmar follows a bottom-up approach to determine staffing
     needs. Units submit their requests for staff needs to their head of department, based on their roles, work
     functions, and work responsibilities, and according to their organizational structures. Heads of departments, in
     turn, submit their staff requests to the director general of their ministry. At this stage, a ministerial committee,
     comprising its director general and directors, discuss and decide on the staffing requests for the ministry. The
     decision is compiled by the ministry’s administration division and submitted to the minister for approval. Once
     the minister has approved it, with the recommendation by the Project Appraisal and Progress Reporting and
     Budget Department, the request for staff needs of the ministry are submitted to the Union Government
     Office. When approved, the recruitment process is initiated (see figure 17).

     172.	 The Government of Myanmar currently reports, but does not analyze, employee turnover data.
     Each department within a ministry prepares a monthly report that lists total staff numbers at the start and end
     of the period, the number of staff who left the civil service by reason (resignation, retirement, dismissal, death,
     and other), and internal movements (i.e., transfers from one department or government body to another).
     These reports are submitted to the Project Appraisal and Progress Reporting Department of the Ministry of
     Planning and Finance.

     173.	 The low turn-over rates suggest that—for now—the Government of Myanmar is able to attract,
     and in particular, retain staff. The World Bank obtained this turnover data from the members of the Inter-
     Ministerial Committee, and the analysis shows that there is very little turnover in these ministries (see table 15).



      Table 15:     Turnover rates (October 2015-September 2016)


                                                 Gazetted staff                                 Non-gazetted staff
                                     Total                            Total            Total
             Ministry                              Resigna-                                          Resigna-           Total
                                  employees                         turnover        employees
                                                     tions                                             tions          turnover
                                   (October                         (percent)        (October
                                                   (percent)                                         (percent)        (percent)
                                     2015)                                             2015)
      Education                        17,655            0.014            0.385         388,711            0.010            0.132
      Energy and Electric                  751           0.046            0.249           7,418            0.039            0.253
      Power
      Home Affairs                       2,060           0.011            0.277          38,434            0.064            0.205
      Planning and                       1,967           0.031            0.343           6,695            0.083            0.254
      Finance
      UCSB                                 300           0.056            0.415              954           0.044            0.264

     Notes: Percent values are derived from averaging the 12-month period between October 2015 and September 2016. This approach was
     chosen to account for the large recruitment in certain departments during this period.




94
Recruitment and selection	
174.	    Recruitment is important because other human-resource policies, such as training and
deployment of civil servants, are dependent on the effectiveness of this process. In Myanmar, the open
competition examination is a fundamental and major channel for selecting civil servants.

175.	 For now, there appear to be strong incentives to join the civil service, according to the focus
groups. Choosing to enter civil service employment is, of course, based on more than compensation levels.
In the focus group discussions, respondents mentioned a range of factors, linking compensation to personal
motivations, as well as to broader views on the development of Myanmar. Some of the reasons offered by
the focus groups for joining the civil service are job security, a stable and reliable compensation, prestige
and dignity, pension benefits, opportunities to go abroad, service to the nation, and lack of opportunities for
alternative employment. Job security and a reliable compensation were the most important reasons. The 2016
perception survey by UCSB and UNDP found that the three key reasons for joining the civil service are to
“make a difference to society” (77 percent), “job security” (74 percent), and “good social status” (50 percent).96

176.	 The open competition examination system is intended to ensure the recruitment of talented
and qualified young people. Applicants are given equal opportunity and are not discriminated against by sex,
age, or origin, once they are qualified. The Myanmar civil service is a career system, which focuses on initial
entry to the civil service, with established career tracks. This is in contrast to a job or position-based system,
where the emphasis is on selecting the best candidate to perform specific job content, whether by internal
mobility or external recruitment. Once recruitment has been completed, the Myanmar career civil service
provides only limited opportunity for lateral entry.

177.	 The available recruitment data suggests that there is excessive demand for government
employment. The number of applicants significantly exceeds the number of available positions (see table
16). There is, however, no data showing the number of qualified candidates. More women than men apply for
gazetted posts.


Table 16:      Recruitment data for civil service positions


       Human resource management                                                      Years
            process/Items                               2010      2011         2012           2013      2014        2015
 Recruitment and selection
 Vacancies for gazetted posts                             392        893        2,050          1,846       371        1232
 Applicants for gazetted posts                          16,386     9,689      26,146          28,956    13,844       41515
 Female applicants for gazetted posts                    5,683     6,335      19,414          20,209     8,707       29000
 Applicants selected for gazetted posts                   324        869        1,656          1,500       314         372
 Females selected for gazetted posts                      117        499        1,005           801        248         825
Source: Data provided to the World Bank team by UCSB.




96  UCSB and UNDP, 2016, “Perception Survey on Ethics, Equal Opportunities, and Meritocracy in the Myanmar Civil Service.”


                                                                                                                             95
     178.	 The process for recruitment and selection is well regulated by law. The Public Service Personnel
     Act (2013), Civil Service Rules 2014 (which guide implementation of the Public Service Personnel Act), and the
     Law on the Union Civil Service Board (2010) clearly describe the process and roles and responsibilities of
     UCSB. For gazetted officers, UCSB is mandated to manage the recruitment and selection, as shown in figure
     17.

     179.	 Ministries take at least seven months to inform UCSB about their staff recruitment needs
     for gazetted staff. Prior to the actual recruitment process, a series of steps are required. First, departments
     submit their manpower needs to the minister’s office for approval. If the proposal is approved by the minister’s
     office, then the request is submitted to a ministerial committee, comprising the minister, the deputy minister,
     and directors general. In turn, the minister’s office checks with the Project Appraisal and Project Reporting
     Department in the Planning Department of MOPF to ensure that the position is approved, and with the
     Budget Department in MOPF to ensure that the position is budgeted for. Only then will the actual recruitment
     process start. (See “accept proposal” in figure 18.) The recruitment process, therefore, usually takes 15-18
     months to complete.


     Figure 19:      The process flow of recruitment for gazetted officers



          Government
          Organization
                                                    Accept                   UCSB announces                  UCSB accepts
                                                   Proposal                    vacant post                  application forms
           Union Level
            Ministries




                                                                                                               Take written
                                                                                                               examination




           Pre Service                         Final Selection                     Personal                Announcement for
            Training                           Announcement                       Interview                personal interview



     Sources: World Bank team’s interview with UCSB, 2016; and interview with UCSB officials, Meritocracy Course 2015.




96
180.	 Non-gazetted officers can be directly recruited by the respective ministries and agencies. Civil
Service Rules 2014 (chapter 3) presents the specific steps for recruiting non-gazetted officers. To a large extent,
these procedures are the same as for gazetted officials:

          •	    The selection board is formed in the respective ministry or department.
          •	    The selection board prepares job descriptions, including the education, skills, and other data on
                the number of men or women for the post, and submits it to the head of department and ministry
                for approval.
          •	    Vacancies are then announced in the newspapers for at least a month.
          •	    Civil servants from other ministries or departments can apply, with the approval of their respective
                ministry or department.
          •	    The selection board conducts a written test, interview, and skills test. The written test includes
                three areas: Myanmar language, English language, and general knowledge. A list of the applicants
                and their scores is submitted to the respective ministry and head of department.

181.	    An effective recruitment and selection procedure normally follows a set of standard elements.
This is the general process used for the Myanmar civil service:

          •	    A job analysis97 leads to a written statement of the duties of the job—the job description, and
                the knowledge and skills that the jobholder needs—the person specification.98 (Because job
                analysis underlies several HRM functions—notably recruitment, promotion, and performance
                appraisals—a special review was undertaken. See table 17.)
          •	    The job advertisement is disseminated to eligible groups with a summary of the job analysis.
          •	    Applicants fill out a standard application form.
          •	    Applicants’ qualifications are evaluated using a scoring scheme based on the person specification.
          •	    A short-listing procedure can be employed to reduce applications, if necessary, to a manageable
                number.
          •	    The final selection procedure is based on the person specification and includes a panel interview.
          •	    The actual appointment of a candidate is based on the composite score from the written
                examination, the interview, and the skills test.
          •	    Notification of results is sent to both successful and unsuccessful candidates.

182.	 Job analysis is undertaken in Myanmar, but it is not systematically applied and the content
varies. A review of the job descriptions for 82 positions assessed the four standard metrics of a job description:
purpose, responsibilities, activities, and reporting arrangements (table 17).99




97  A job analysis is the process of gathering and analyzing information about the work content and the human requirements of a job.
It involves the preparation of a job description and a person specification.
98  A person specification is a statement of characteristics, qualifications, and competencies that are required for the satisfactory
performance of a job’s defined duties, tasks, and responsibilities.
99  World Bank team review of job descriptions.


                                                                                                                                    97
     183.	 The findings of the team review of job analysis and job descriptions offer several useful
     insights. Firstly, it is positive that a mechanism for a job analysis is in place, even though it is not systematically
     applied or enforced in the Myanmar civil service. Job descriptions are also in place to guide the operation of
     organizations. Secondly, while responsibilities and activities are generally articulated clearly, this is not the case
     with descriptions of the purpose of the job. This is a weakness, since the purpose of the job is supposed to
     define the job activities and the job responsibilities. Reporting arrangements are also not clear. Thirdly, on
     average, more detail is provided in the job description as positions rise in seniority, which seems sensible: higher
     positions involve a higher degree of job complexity.


      Table 17:      Review of job descriptions in the Myanmar civil service


                                       No. of job                 Specific characteristics included in job descriptions
             Ministry                 descriptions                               Responsi-                             Reporting
                                       reviewed                Purpose                              Activities
                                                                                  bilities                           arrangements
      Education                            88                    71%                100%               98%                 2%
      Health                               17                    24%                88%                100%               47%

     Sources: World Bank team review of job descriptions, and Ministry of Health Job descriptions, published in the Hospital Management
     Manual, Department of Medical Services, 2011.



     184.	 Vacancies are announced for gazetted and non-gazetted positions in daily newspapers and
     on the UCSB website. The World Bank team reviewed 20 job announcements (see annex 11) and found a
     consistent pattern: all the vacancy announcements are general in nature and they list only brief information
     about the job content, such as name of department, number of vacant positions, and education qualifications
     required—not competencies. (See annex 12, “Sample of vacancy announcements.”) This makes it difficult for
     the recruitment panel and applicants to see if competencies match the job requirements.

     185.	 According to the UCSB/UNDP perception survey, the majority of respondents indicated that
     their jobs had been openly advertised. But respondents commented that applicants still tend to rely on
     personal networks to access recruitment information: 60 percent said that their top source of information was
     “friends or colleagues,” and 42 percent noted it was government newspapers.100

     186.	 Fifteen examination centers are located in the capitals of seven regions and seven states, plus
     Nay Pyi Taw. The examinations serve to reduce the number of applicants to a shorter list. Applicants can
     choose any of the examination centers throughout the nation. The examination questions cover three areas:
     the Myanmar language, the English language, and general knowledge. The answer forms are assigned coded
     roll numbers to ensure transparency. The applicants’ answers are graded, sorted by the composite scores (the
     total of the marks from each of the three areas), and submitted to UCSB. In 2016, UCSB reduced the number
     of exam centers to five, located in Yangon, Mandalay, Nay Pyi Taw, Magway and Mon State.

     187.	 UCSB selects a number of candidates for interviews, according to the number of vacancies,
     using the coded roll numbers. Chapter 3 in Civil Service Rules 2014 describes a general scoring scheme. But,
     since the person specification is very nonspecific—again due to the weak job analysis—it is challenging to



     100  UCSB and UNDP, 2016, “Perception Survey,” 5-6.


98
measure and operationalize the scoring scheme. The selection officials translate the coded roll numbers into
names (according to their confidential records) and announce the successful candidates for interviews. They
inform the candidates of the dates of interviews and a required psychological test.

188.	 Members of the UCSB panel interview the successful candidates. The documentation submitted
to the UCSB panel includes the application, a letter of permission of the ministry concerned if the candidate is
part of existing? service personnel, degree certificates and other required documents, results of the psychological
test, and basic facts about the post to be appointed.

189.	 The UCSB panel, led by its chair, confirms the marks of each candidate from their interview
and written examination and selects the successful candidates, according to the vacancies. Reserve
candidates are also selected at the same time. The director general of the Civil Service Selection and Training
Department announces the successful candidates and sends letters of notice to the ministries, departments, and
enterprises, informing them of the selection list (UCSB Law).

190.	 Although the recruitment process is well regulated by law, several challenges persist. The weak
job analysis makes it difficult to match the recruited official with the best position. The focus group discussions
revealed a perception that there is too strong a focus on the written examinations and that the three themes
(Myanmar language, English language, and general knowledge) are so general that it is difficult to test for
specific job competencies. This is compounded by the weak person specification—the statement of employee
characteristics, qualifications, and competencies which are required for the satisfactory performance of a job’s
defined duties, tasks and responsibilities. The too-general scoring scheme thus becomes difficult to measure and
make operational.

191.	    The perceptions reflected in the focus group discussions and the HRM survey tend to confirm
these challenges—leading to questions about effectiveness and fairness. Among gazetted staff, 47
percent did not think that the recruitment and selection system recruits the most qualified people for the civil
service. This does not seem to be caused by gender challenges: more than 80 percent of gazetted and non-
gazetted staff thought that the recruitment system provides equal opportunities for women and men. Some of
the participants in the focus groups also voiced concerns about bias, stating that “highly-qualified employees
should get hired without corruption” and that “highly-qualified employees within the department should get
promoted without bias.”

192.	 The ribbon campaigns in 2015 are also a reflection of this concern about lack of fairness and
political neutrality in the recruitment system.101 In the UCSB/UNDP survey, 82 percent of respondents
thought that the recruitment process is mostly fair. In contrast, however, 65 percent of respondents also said
that “some” or “all” civil servants use their personal network to obtain positions. Discrimination did not
arise as a major challenge in the UCSB/UNDP survey: 77 percent thought that the recruitment process is
fair for men and women (gender); and 86 percent of respondents indicated that they believed that there is no
discrimination against non-Bamar (ethnic) candidates.102 A balanced ethnic representation in the civil service is
worth monitoring.


101  The “black ribbon” campaign in 2015 was an initiative launched by Ministry of Health Officials (see http://www.mmtimes.com/
index.php/national-news/16629-black-ribbon-campaign-gains-new-momentum.html ) to promote stronger meritocracy in the civil
service. Lawyers in Nay Pyi Taw defending the judiciary followed suit with a “yellow ribbon” campaign in September 2015 (http://www.
mmtimes.com/index.php/national-news/nay-pyi-taw/16544-yellow-ribbon-campaign-expands.html). In addition, local administrators
in the Mandalay region started a “blue ribbon” campaign against assigning non-civil servants to district and township electrical power
offices (http://www.elevenmyanmar.com/local/electrical-engineers-mandalay-launch-blue-ribbon-protest).
102  UCSB and UNDP, 2016, “Perception Survey,” 7 and 22 (figure 9). The number of non-Bamar respondents in the survey was too
small to draw any firm conclusion regarding ethnicity. (Only 2% of the respondents defined themselves as ethnic minorities.)


                                                                                                                                     99
      Deployment and retention
      193.	 The ability of a government to efficiently deploy its civil servants is critical to achieve service
      delivery objectives. Deployment of civil servants in the Myanmar civil service can be defined as a move of
      a gazetted or non-gazetted officer from one position to another, within the same occupational group or to
      another occupational group. Retention of civil servants involves the ability to keep them in their positions, as
      long as desired, according to policy objectives and the needs of departments. Overall, the deployment of civil
      servants should be guided by the objectives of meeting operational needs, fulfilling the career development and
      individual needs of employees, and developing the skills and abilities required by organizations in the longer
      term—all in the context of the Government’s broader performance objectives.

      194.	 Neither the Public Service Personnel Act nor Civil Service Rules 2014 provide much detail on
      the policy for deployment of civil servants. Civil Service Rules 2014 regulates the transfer between ministries.
      UCSB and the ministries,103 from and to which the civil servant is being transferred, coordinate and agree on
      the transfer, starting with a letter from the ministry requesting the transfer. The transfer is then approved by
      the president and the Union Government Office. The limited information is again an issue: in the UCSB/
      UNDP survey, 41 percent of respondents indicated that they had limited information on the actual regulations
      for deployment of staff.

      195.	 There is relatively wide discretion for transferring staff to and from positions within the same
      ministry, and between union and sub-national levels, down to the townships. This level of discretion
      could provide opportunities for rent-seeking, but the review was not tasked with investigating this. However, in
      light of the limited policy guidance, it is difficult for ministries to deploy the best person for the job (see table
      18). Among other things, this would involve a much stronger focus on matching individual job requirements
      with the competencies of the person to be deployed. The Myanmar career civil service, with its emphasis on
      the point of entry, is also somewhat difficult to align with a focus on individual positions.


       Table 18:      “Best person” versus current practice in Myanmar

                 Implication of best person in the job                       Implication of current practice
        The focus is on individual jobs at all levels             The focus is on the point of entry
        The appointee is the best candidate                       The appointee is merely able to do the job
        Posts are open to all eligible candidates                 Posts are restricted to certain candidates
        The appointment process is systematic, transparent, and   The appointment process may be arbitrary, secretive, and
        challengeable                                             not challengeable


      196.	 These findings were also confirmed in the focus group discussions. The perception among staff
      is that the policy on staff deployment depends on the respective ministry and department. From the survey
      findings, 43 percent of respondents said that there is no clear policy or criteria for the posting and deployment
      of staff in the ministries and departments. The focus groups commented that there is no comprehensive policy
      and precise specifications on staff deployment covering the whole civil service.




      103  See chapter 3, section 23(a).


100
197.	 There is a perception among civil servants that posting and deployment of staff are not always
carried out in a fair and transparent manner. While 49.7 percent of the survey respondents said that the
posting and deployment of staff is fair and transparent, 39.7 percent said that it is not. Some quotes from the
focus group discussions reflect this:

         “It is not fair; depends on the attitude of the head of department (the person who has authority).”
         “The priority is given to the close relatives of the civil servants.”

This finding is confirmed by the UCSB/UNCP perception survey, where less than half of respondents felt that
deployment was merit-based.

198.	 While these statements are not necessarily representative for the whole population of civil
servants, they do indicate that there are challenges. Civil servants cannot choose where they want to be
posted or deployed. The UCSB/UNCP survey found that 90.5 percent of respondents said that civil servants
cannot choose where they want to be posted or deployed, while 7.9 percent said that they can.

199.	 The challenges in deployment do not seem to affect overall retention in the civil service.104
Retention of staff in poor and remote areas is the key binding constraint. As evidenced by the extremely low
turnover rates in the civil service (see table 14), there is no overall problem of retaining civil servants once they
are recruited into the system. Rather, and hardly surprisingly, there is a profound challenge of keeping staff in
poor and remote areas, which has a detrimental impact on service delivery. As reflected in chapter 7 (on the
education sector), it is a problem to retain experienced teachers in poor and remote areas. Asked if “you have a
chance to choose a place to teach,” only around 15 percent of teachers answered that they would like to serve
in remote areas. (See figure 24 in chapter 7.)

200.	 To address the overall challenge of retention, the Government of Myanmar has introduced
the regional allowance. However, it is not clear that the allowance has produced the desired outcome. The
regional allowance, described in previous chapters, was introduced to attract and retain public servants in poor
and remote areas. The survey and the focus group discussions consistently found that the perception among
civil servants is that the allowance does not have a discernible impact by itself.

201.	 Around 66 percent of both gazetted and non-gazetted officers in the survey said that the
regional allowance is not enough to keep civil servants assigned to poor and remote areas. The focus
groups agreed that the regional allowance is not attractive enough because of other factors in these areas,
such as a lack of security, high commodity prices, weak educational and healthcare services, and difficulties in
transportation.

Promotions
202.	 The criteria and procedures for promotion are provided in Civil Service Rules 2014. Staff who
are “qualified in terms of education, rank of position, skills, official position in service, and duration of service,
and are able to undertake the duty of the position on promotion are eligible for promotion.”105 Civil Service Rules
2014 specifies an examination board and a qualifications assessment process to govern promotions:




104  See, for example, Ministry of Education, with JICA, 2014. “Comprehensive Education Sector Review (CESR) Phase 2 Report
on Teacher Education.”
105  Civil Service Rules 2014, chapter 4.


                                                                                                                          101
                •	    Qualification Examination Board (QEB) — The QEB is comprised of suitable officers from the
                      respective ministry and head of UCSB, and is responsible for the entire promotion process,
                      including conducting the written and practical examinations, scoring a candidate based on
                      performance appraisals and years of service, and scheduling the personal interview.

                •	    Qualification testing and assessment — The qualifications test includes written examinations, a score
                      that captures performance appraisal and years of service, and a personal interview. The rules
                      state that the written and practical tests, as well as the personal interview, may not be required and
                      may be left to the discretion of the QEB. Table 19 shows how elements are assessed (and points
                      awarded) by the scoring system.


       Table 19:       Myanmar promotion assessment system

                                                  Assessment method                                                             Points
        1. Written and practical tests                                                                                            100
        - Written examination (40 pts) plus practical testing (60 pts)
        - Only written examination or practical test (100 pts)
        - Other testing method (100 pts)
        2. Performance appraisal                                                                                                  100
        3. Years of service*                                                                                                      100
        4. Personal interview**                                                                                                    50
        Total score                                                                                                               350

      Source: Civil Service Rules 2014, chapter 4.
      * For years of service, three points are awarded per year in current position rank; two points are awarded per year for time in a position
      one level lower in rank; one point is awarded per year of service in a position two levels lower; and half a point is awarded per year of
      service for every year in any lower position.
      ** The QEB is responsible for the personal interview and awards a maximum score of 50 points, based on the following: 1) 20
      points for competency for the job, 2) ten points for being active and clear, 3) ten points for good insight, and 4) ten points for general
      knowledge.



      203.	 The QEB then produces a ranked list, based on the total scores from the assessments. If there
      is tie for the highest score, the person with more years of service is prioritized. If the QEB cannot conduct a
      written examination and practical test, the final scores are derived from years of service and the performance
      appraisal.106

      204.	 There are several possibilities, described in Civil Service Rules 2014, to circumvent the normal
      promotion process. For example, it is possible to promote lower-level civil servants, if there is a vacancy and
      if they are in compliance with the minimum requirements for years of service and performance appraisal. In
      addition, the head of the respective civil service body is given the authority to promote civil service employees,
      if they are deemed to perform well.107



      106  In the UCSB/UNDP perceptions survey, there were several references to the written examinations and how they were not
      appropriate. For example, some employees noted the challenges in finding time to study, due to the demands of their work. They also
      commented that underemployed or nonperforming staff would have more time to study.
      107  The respective civil service body coordinates the promotion of a gazetted officer with UCSB under this process.


102
205.	 There is a perception that political considerations influence the promotion process of civil
servants. In the UCSB/UNDP perceptions survey, 25.6 percent of gazetted officers and 34 percent of the
non-gazetted officers stated that political considerations play a role in the promotion process of civil servants.
As a consequence, 55.1 percent of gazetted officers and 25.3 percent of non-gazetted officers disagreed that the
most qualified and competent person is promoted. Another finding was that around 50 percent of respondents
thought that their managers follow rules and regulations, and assign promotions based on performance and
merit, while 25 percent thought that promotions are given based on friendships and bribes.

Performance appraisals
206.	 Performance appraisals are carried out by ministries and departments for purposes of staff
promotion. The performance assessment criteria contained in Civil Service Rules 2014 (chapter 4) are stated in
general terms and are prone to subjective interpretation by the assessors in the performance appraisal process.
The performance criteria look at the following elements in table 20.

207.	 Staff are assessed once a year by the head of their department, with four possible outcomes:
below average, average, above average, and outstanding. Each of the performance criteria are assessed,
and points are awarded as follows: below average, up to 3 points; average, 4-6 points; above average, 7-8 points;
and outstanding, 9-10 points. Below average and outstanding levels require an explanation on the appraisal
form. The assessment criteria (which were issued in January 2017) are all sub-divided into detailed elements.


Table 20:        Myanmar performance appraisal system

                       Clerical Staff to Assistant Director          Deputy Director to Deputy Director General
     #
                         Performance criteria             Points            Performance criteria         Points
      1        Responsibility                                 10    Leadership                              20
      2        Competency                                     10    Confidentiality                         20
      3        Confidentiality                                10    Skill                                   20
      4        Learning                                       10    Duties undertaken willingly             20
      5        Diligence                                      10    Decent social relationship              20
      6        Creativity                                     10
      7        Good discipline                                10
      8        Voluntary service                              10
      9        Good relationship                              10
     10        Leadership                                     10
   Total                                                      100   Total                                  100

Source: Civil Service Rules 2014, chapter 4.




                                                                                                                  103
      208.	 The performance appraisal system puts more weight on traits than performance. As reflected in
      table 20, the performance appraisal system emphasizes personal characteristics and traits, such as responsibility,
      competency, confidentiality, etc., which are presumably related to job performance. One problem with rating
      traits is that they are difficult to define objectively or to a standard, and thus are at risk of varying interpretations
      by managers. A gradual move to a more results-based appraisal system, linked to organizational performance and
      service delivery targets, would be beneficial. Because current job descriptions only weakly specify deliverables,
      applying a more results-based system would need to be linked to upgraded and revised job descriptions.

      209.	 Supervisors seldom discuss performance appraisals with their staff. In the civil service survey,
      67 percent of gazetted officers and 68 percent of non-gazetted officers reported that their supervisors
      discussed their performance appraisal report and gave them feedback about their job performance. This is
      confirmed by the UCSB/UNDP perception survey, where only 26 percent of survey respondents said that
      they were adequately informed about the performance appraisal system, and 63 percent were not aware that the
      performance appraisal took place annually. Thus, the performance appraisal is not linked to the improvement
      of individual civil servants’ skills and competencies. For example, there are no requirements for coaching or
      training, for either managers or employees, on the performance appraisal.

      210.	 In the civil service survey, 56 percent of gazetted officers and 19 percent of non-gazetted
      officers stated that the performance appraisal system for promotion is not fair and transparent. The
      focus group discussions yielded the following statements:

               	    “The performance appraisal system is not transparent and fair because high scores are given to
                    their own staff based on personal social relationships.”
               	    “There is poor job assessment because of personal bias.”
               	    “Performance appraisal for promotion should include higher qualifications, and experienced and
                    competent employees should be evaluated without corruption and bias.”

      In sum, the broader question in the analysis of the performance appraisal system is how to make the tool more
      relevant for the management of the civil service. This would imply increased use of performance appraisals in
      the promotion process, and using the performance appraisal to enhance skills and competencies. For a start,
      annual appraisal and development consultations between manager and staff could be introduced.

      Options for managing human resources
      211.	 In the absence of an overall strategy for civil service reform in Myanmar, the most viable
      reform path will be to address some of the basic shortcomings in human resource functions. For
      some of the options considered for civil service reform, more evidence would be needed, such as a better
      understanding of what drives bad and good performance, and more in-depth examination of the strengths and
      weaknesses in civil service recruitment and its processes.

      212.	 Gazetted officers constitute around 8 percent of total civil service employment, but they play a
      key role in the drafting and implementation of rules and regulations. Consequently, more research would
      be required on this group of officials.

      213.	 Reforms in some of the key HRM functions would also have a more immediate impact on
      performance and service delivery. Strengthening the deployment and retention of midwives and auxiliary
      health workers, for example, would help reduce birth mortality rates.


104
214.	 RECOMMENDATION 6.1. The Government of Myanmar could conduct regular monitoring
to assess the size of work force problems and measure progress. It is noteworthy that the Myanmar
civil service does not seem, for now, to have any difficulty attracting and retaining staff, apart from those
assigned to poor and remote areas. Measuring key features on an annual basis can show if things are getting
better, getting worse, or staying the same. Monitoring indicators should focus on specific concerns, such as
recruitment difficulties for specific skills, positions, or locations; or greater ethnic representation in the civil
service. The calculations should be clear and done the same way every time. Indicators that are too general
or poorly calculated will not be helpful. In very practical terms, the review demonstrated that it is possible to
compile, consolidate, and analyze information regarding turnover rates that, in turn, could inform specific
HRM interventions in the Myanmar civil service.

215.	 RECOMMENDATION 6.2. The Government of Myanmar could consider establishing a
human resource management unit for each ministry, whose functions could be expanded to include human
resource planning, development, recruitment and selection, training and development, and management—with
particular focus on deployment and retention in underserved areas. The customized wage bill and work force
planning could inform the various policy choices that the ministries would have for staff deployment.

216.	 RECOMMENDATION 6.3. The wage bill forecasting model can be used to strengthen
human resource planning and give flexibility to the two-thirds policy by providing an accurate projection of
the budgetary impact. It can also help answer these specific questions:

        •	    Does current staffing reflect the priorities and performance targets of the Government?
        •	    What are the greatest staffing priorities going forward?
        •	    How can the Government of Myanmar maximize developmental impact of human resources?

A regular report on human resource issues could also be considered in order to provide the following
information, depending upon management needs:

        •	    Regular analysis of turnover data to inform human resource planning (this could be done through
              a joint working group led by MOPF and UCSB, since these agencies have the available data. It
              would be useful to include GAD and some of the big ministries, such as health, education and
              labour, immigration and population.)
        •	    Number and distribution of staff by job title in priority or underserved areas
        •	    Staff per ministry and the staffing composition for each department
        •	    Staff ratios, such as the number of technical staff per manager and the number of support staff
              per technical staff
        •	    Demographic information, such as the number of teachers per pupil by township or school, and
              the number of nurses per population by township
        •	    Salaries as a percentage of the total budget of the ministry




                                                                                                                   105
       Figure 20:      Recruitment and human resource functions through job analysis and use of job descriptions




                           Recruitment and              Training and                  Performance
                              selection                 development                   management




                           Organization                   Job
                                                                                     Employee life cycle
                            structure                  description




                                                        Succession
                            Pay and reward                                         Career management
                                                        management



      Note: Red circles are areas of priority.



      RECOMMENDATION 6.3. To support a gradual move to a more position-based system in general
      and to provide the micro-evidence for recruitment, the Government of Myanmar can consider using
      job analysis as a specific tool. Job analysis involves three specific aspects: 1) development of job descriptions
      that include a statement of purpose, responsibilities, activities, and reference; 2) a person specification that
      clearly enumerates the skills, abilities, knowledge, and minimum education required to perform the job; and 3)
      performance indicators that measure quantifiable outputs from the job performance. The approach could be
      gradually rolled out, starting with pilot ministries. This would also be synergetic with the proposal in chapter 5
      to review the rationale and suitability of the civil service grade structure (recommendation 5.6). A practical use
      of job descriptions, for example, can strengthen several of the human resource functions highlighted in figure
      19. Those functions in red indicate priority consideration. Key agencies to lead this initiative would be UCSB
      and the Office of the Ministries. The move to a more position-based system would have to start within the
      career-based civil service.

      218.	 RECOMMENDATION 6.4. Consider making the policy on deployment more explicit and
      transparent. Based on the analysis above, the Government of Myanmar could consider developing a
      more specific policy on deployment. They should be made in a fair, reasonable, and transparent manner,
      taking into account not only the needs of the organization but the legitimate career interests and aspirations
      of employees. The policy could, as a next step, be operationalized and monitored against a backdrop of very
      specific criteria. Introducing such a policy would be a relatively minor endeavor, whereas implementation would
      require developing capacity at the ministerial level and monitoring its enforcement. Key agencies involved in the
      drafting of this policy could be UCSB, the Union Government, the Office of the President, and some of the
      larger sector ministries.


106
219.	 RECOMMENDATION 6.5. A bundle of different incentives, based on evidence, might be
considered in order to strengthen the retention of civil servants in poor and remote areas. The key is
to understand what types of incentives might attract (or encourage) civil servants to choose to work in remote
areas.108 The regional allowance is already offered as an incentive, but the focus groups also highlighted that
such mechanisms as directly recruiting from the remote areas (e.g., auxiliary health staff), accelerating career
opportunities, offering housing support, and setting up special transportation facilities, etc., could also be used
to strengthen retention in remote areas. It will, however, be important to monitor these incentives to ensure
their efficient, effective, and consistent application.

220.	 RECOMMENDATION 6.6. The Government of Myanmar might consider strengthening the
format, implementation, and monitoring of performance appraisals. This effort would mesh well with a
gradual move to a more position-based system, where performance appraisal methods are job-related. In this
context, the recommended job analyses must be conducted before selecting a performance appraisal process.
Managers could also be trained to conduct performance appraisals. The proposed human-resource units in each
ministry could be in charge of this, relying on overall guidelines issued by UCSB. A reporting system to ensure
that appraisals are conducted on a timely basis and follow the guidelines should underpin the process. It also
needs a means of maintaining performance appraisal records for individual employees. In essence, this would
entail making the performance appraisal matter, by providing stronger links to promotion, rewards, and even
demotion.




108  One possible approach to establish this policy evidence is through a so-called discrete choice experiment, a quantitative research
method that can measure the strength of preference and trade-offs of civil servants for different job characteristics, which can influence
their decision to apply for and stay in rural postings. See, for example, M. Ryan et al., 2012, “How to Conduct a Discrete Choice
Experiment for Health Workforce Recruitment and Retention in Remote and Rural Areas.”


                                                                                                                                         107
      CHAPTER 7
      HOW DOES THE GOVERNMENT MANAGE AND
      COMPENSATE ITS TEACHER WORK FORCE?

      The importance of the education sector in the context of pay and
      compensation
      221.	 This chapter takes an in-depth look at Myanmar’s education sector to explore pay and
      compensation, and management issues, through a sector-specific lens. It focuses on how the teacher
      work force is managed and functions. As with the overall report, this chapter examines key areas: 1)
      recruitment and selection, 2) deployment and retention, 3) management and supervision, 4) human resource
      planning, 5) pay and compensation, 6) professional development, and 7) performance and appraisal.

      222.	 Teachers are the single largest category of civil servants, making up more than one-third of
      the total work force employed by the Government of Myanmar, and accounting for nearly one-half of
      the union budget’s wage bill. Also, retired teachers make up one-third of all government pensioners. In the
      budget for FY 2016/2017, teachers’ pay made up 66 percent of the recurrent resources allocated to the basic
      education sector. Understanding the pay and compensation arrangements of the civil service in Myanmar can
      be enhanced by closely examining the policy covering the more than 340,000 individuals who work as teachers.

      223.	 The last four years in Myanmar have seen the introduction of sweeping reforms to teacher
      policies, with more being planned. A legal framework was laid out in the 2014 National Education Law and the
      2015 National Education Law Amendment (which includes a quality framework). It requires teachers to complete
      basic pre-service teaching qualifications and also requires the Ministry of Education to ensure that teachers have
      access to quality, ongoing professional development. Key provisions related to teachers are listed in box 10.

      Box 10:      The National Education Law and teacher management

         The National Education Law (passed in September 2014) sets out the following provisions related to
         teacher education and management:
         Provisions relevant to pre-service teacher education:
            •	 Teachers must have a teacher education diploma, certificate, or degree (chap. 9, art. 50.c).
            •	 Teacher education and admission, curriculum, and course duration are to be defined in the
                regulations (chap. 5, art. 20.b).
            •	 Higher education must be available at universities, Education Colleges, Institutes of Education,
                and the equivalent level schools within these institutions (chap. 5, art. 25).
            •	 Autonomy in learning and management systems must be applied in higher education institutions
                (chap. 5, art. 26).
         Provisions related to teacher professional development:
            •	 The Ministry of Education and other ministries are to arrange for the improvement of teachers’
                skills and international exposure (chap. 9, art. 52).
             •	 The Ministry of Education and line ministries must provide opportunities and take responsibility
                for the professional development of teachers (chap. 9, art. 53).
            • 	 The National Quality Assurance Commission must define assessment standards, and ways to
                measure quality assurance (chap. 10, art. 54.c).


108
224.	 Some of the most important reforms focus on teacher and staff compensation, and a new
practice of hiring uncertified teachers in large numbers. In terms of compensation, the wage bill has
increased substantially. In the past, the wage bill (of all civil servants) was tightly managed: civil servants were
on a single wage grid, which was unchanged for extended periods of time in nominal terms, except for small
annual increases—MMK 1,000 or MMK 2,000—“within” that grid. Specifically, during the period 1972-2013,
nominal wages were only increased six times.109 In FY 2013/2014 and FY 2014/2015, annual nominal wage
increases of MMK 20,000 were made to the wage grid.

225.	 Important changes have also taken place in recent years for allowances. A monthly allowance
for all civil servants of MMK 30,000 was introduced in FY 2012/2013, but cancelled for FY 2015/2016. A
regional allowance for all civil servants working in hardship areas was introduced to give them an incentive to
seek employment and stay in the more remote locations. The allowance in FY 2012/2013 was equivalent to
double the base salary, but was modified in FY 2015/2016 to include set amounts, based on the designation of
the hardship area as “fairly hard,” “hard,” or “hardest.”110 In the education sector, approximately 6 percent of
all teachers worked in 87 hardship areas in 2012.111 Since then, the number of hardship areas has increased to
110, and the percentage of teachers in hardship areas had risen to 13 percent by 2015.112

226.	 With its new practice of hiring contract teachers, in three years, the Ministry of Education
has dramatically changed the composition of its teaching work force in some very profound and (for
Myanmar) uncharted ways. First, the Ministry introduced the notion of employing uncertified teachers:
these teachers have completed a bachelor’s or master’s degree at a university, but have not trained at one of
the 22 education or teacher-training colleges. Recruitment also included high school graduates, who agreed
to work in hard-to-staff schools. Second, the Ministry decided to hire all these new teachers as “contract
teachers,” known as daily wage teachers (DWT), which introduced a new category of staff into the Myanmar
school system. Third, it allowed state and regional education officers (of the Ministry) a greater say in the hiring
process. By themselves, each of these modifications represents important policy changes that would have
benefited from pilot tests and careful assessment of their impact on motivation, performance, and quality of
the people recruited. Since 2013, an additional 72,000 teachers (representing nearly one-quarter of all teachers
employed) have been recruited and deployed in this way.113 There are also plans to hire 29,688 DWTs per year
in the 2016–2017 and 2017–2018 school years.

227.	 A major policy requiring at least five teachers per primary school is driving the need for more
teachers and reshaping the teacher work force. While the number of students is increasing, the number of
teachers is increasing at a faster rate. The five-teacher policy was introduced in 2012. This has been a key driver
in the extraordinary increase in teacher hiring and has important implications because of the large number of
small schools in Myanmar. Also, while the impact has not begun yet, the Myanmar school system is expanding
the number of years of education. Kindergarten was introduced in 2016, and grade 12 will be introduced by
2028. These policies are discussed in more detail later in the chapter, in relation to teacher management and
teacher supply and demand.




109  The wage structure was fixed in nominal terms during the following periods: 1) 1972–88, 2) 1989–93, 3)1993–2000, 4) 2000–
2006, 5) 2006–2009, and 6) 2010–2013, and 7) 2013–2014.
110  It is important to note that, while the hardship allowance decreased, at the same time the base salaries increased, so teachers in
hardship areas still had compensation increases overall.
111  National Education Strategic Plan (NESP) 2016-2021, p. 38.
112  In the 2015-2016 school year, 45,053 teachers worked in hardship areas.
113  Ibid.


                                                                                                                                      109
      228.	 Of particular policy relevance for the education sector is the recently released National
      Education Strategic Plan (NESP) for 2016-2021. In relation to teachers, NESP identifies three key areas:
      1) management mechanisms for the development and retention of quality teachers, 2) quality improvement in
      pre-service education, and 3) access to quality in-service teacher professional development.

      Overview of the education system and teachers
      229.	 The current basic education system now comprises kindergarten, five years of primary
      education (grades 1-5),114 four years of lower secondary (grades 6-9), and two years of upper secondary
      education (grades 10-11). Kindergarten was introduced in 2016 and is being implemented in all primary school
      sites. Grade 12 will be introduced by 2028. In the 2015-2016 school year, there were 47,363 basic education
      schools in Myanmar, staffed by 340,995 teachers, reaching approximately 9.26 million students.115 The majority
      of these schools are managed by the Department of Basic Education (DBE).116 The education system has
      seen rapid expansion in recent years. Compared to the 39,100 basic education schools, 216,039 teachers, and
      6,906,065 students in the 2001-2002 school year, the number of schools has increased by 21 percent, teachers
      by 58 percent, and students by 34 percent. It is important to note that the rate of teacher increase is greatly
      outpacing the student increase, which has improved the student-teacher ratio.

      230.	 In considering pay and compensation issues, it is useful to first examine relevant dimensions
      in the makeup of the teacher work force. While this report is not intended to give a full picture of the
      teacher work force, the following aspects provide important context for teacher policy on employment and pay.

      231.	 Gender differences for teachers and administrative staff are pronounced. Figure 21 compares
      the gender distribution across the main school positions, taken from a 2015 school survey.117 The results show
      that women make up the (large) majority of teaching staff. However, women make up only 61 percent of
      head teachers, which is a significantly lower representation of females than in most other positions. Recent
      reforms have tried to address the gender imbalance of teachers by raising salaries (for both men and women)
      and lowering the selection criteria for men. Since the promulgation of the 2011 policy to recruit more men,
      matriculation of students in at least one of the Institutes of Education (IOE) has been fixed at 60 percent
      for men and 40 percent for women.118 For administrative positions at the township level, however, assistant
      township education officers (ATEOs) are nearly all male.




      114  It is important to note that with the introduction of kindergarten in 2016, there was not a wave of first-grade children. In the next
      school year, there will not be a second-grade group. This ripple effect is discussed in more detail later in the chapter.
      115  NESP 2016-2021, p. 32.
      116  Until 2014, there were three separate Departments of Basic Education, namely DBE1 (Lower Myanmar), DBE2 (Upper Myanmar)
      and DBE3 (Yangon Division). Now a single DBE operates.
      117  The World Bank and Ministry of Education conducted a 2015 Myanmar school survey of 800 nationally representative schools
      across 80 townships.
      118  Japan International Cooperation Agency (JICA), 2013, “Data Collection Survey on Education Sector: Final Report.”


110
 Figure 21:     Breakdown of school positions by gender


            100%
                                                                                          11.2           16.2
             90%                                                     25.9                                                 19.7
             80%                                  39.3
             70%
             60%
             50%                                                                          88.8           83.8             80.3
             40%                                                     74.1
                                                  60.7
             30%
             20%
             10%
              0%
                                             Head Teacher       Assistant Head        Teacher          Daily Wage     Community
                                                                   Teacher                              Teacher        Teacher

                                                                                 Female         Male


Source: World Bank and Ministry of Education Myanmar school survey, 2015.

232.	 On average, teachers have 11.9 years of total experience as teachers and six years working in
their current school. More experienced teachers are found in middle and post-primary schools, and urban
school teachers have twice as much experience as their rural school counterparts. Figure 22 shows that in the
category A (least remote) schools, teachers average 19.5 years of experience, compared to 5.6 years in category
E schools (the most remote). These gaps are likely a result of experienced teachers from rural and remote areas
using the promotion and transfer system to obtain urban jobs, which prompts the Ministry of Education to
deploy less experienced teachers to these schools.

 Figure 22:     Teachers’ level of experience by school remoteness category


                                             25

                                                         19.5
                                             20
                 Total years of experience




                                             15
                                                                       12.6

                                             10                                           9.4
                                                                                                       7.8
                                                                                                                    5.6
                                              5


                                              0
                                                          A              B              C              D             E
                                                                             School Remoteness Category


Source: World Bank and Ministry of Education Myanmar school survey, 2015.
Note: Categories A and B are urban, while C, D, and E are rural (in increasing order of remoteness).

                                                                                                                                  111
      233.	 Geographic location is also a striking difference for teachers with 0-3 years of experience. New
      teachers tend to be placed in the most remote schools: 83 percent of all new teachers are in categories C, D,
      and E schools (rural to highly remote). In contrast, 41 percent of teachers with more than 3 years’ experience
      are in category A (highly urban) schools (figure 23).


       Figure 23:     Primary teachers’ level of experience (percent) by school remoteness categories




      Source: World Bank and Ministry of Education Myanmar school survey, 2015.
      Note: Categories A and B are urban, while C, D, and E are rural (in increasing order of remoteness).


      234.	 Due to a recent hiring wave of teachers, a large proportion of teachers have only three (or
      fewer) years of teaching experience. Among all teachers, 31.4 percent have 0-3 years of experience, compared
      with 28.3 percent of teachers with 21 or more years of experience. Figure 23 shows the breakdown of teacher
      experience, and figure 25 shows teacher experience by school level. Primary schools have the highest percentage
      of teachers with only 0-3 years of experience (40.8 percent), followed by post-primary (22.4 percent) and
      middle schools (17.6 percent). It is important to note that tat all school levels, there is a sizeable group of very
      experienced teachers (those who have taught for more than 20 years), which makes up just under 30 percent of
      the total work force.


       Figure 24:     Teachers’ experience by year range (all teachers)




                                                        More than
                                                         20 years             0-3 years
                                                          28%                   31%




                                                         11-20 years
                                                                          4-10 years
                                                            21%
                                                                             20%




      Source: World Bank and Ministry of Education Myanmar school survey, 2015.

112
 Figure 25:     Teachers’ experience by year range and school level



                     Primary                40.8                15.6          16.3          27.3




                      Middle        17.6           24.6                27.2                30.6




                Post primary         22.4             24.9                 24.6             28.2


                               0%           20%           40%              60%          80%        100%

                                0-3 years    4-10 years      11-20 years      More than 20 years


Source: World Bank and Ministry of Education Myanmar school survey, 2015.



235.	 There is a big contrast in the number of teachers with 0-3 years of experience who have
education-specific diplomas and certificates, and teachers with more experience. As shown in figure
26, only 32 percent of new teachers have a teacher education degree (or higher qualification) compared to 96
percent of experienced teachers. Significantly, a large number of new teachers have the one-year certificate of
teacher education from an education college, which only qualifies them to teach at primary level.



 Figure 26:     Education degrees of new teachers versus experienced teachers at primary school level




Source: World Bank and Ministry of Education Myanmar school survey, 2015
Notes: Abbreviations used in figure—DWT = daily wage teacher; certificate = certificate of education (Cert.Ed.); DT. Ed. = degree
in teacher education; PATC = primary assistant teacher certificate; JATC = junior assistant teacher certificate; and university =
diploma in teaching, (B.Ed. or higher).




                                                                                                                                    113
      Recruitment and selection
      Candidates for the teaching profession in Myanmar
      236.	 Before recruitment and selection can take place, a pool of candidates must be attracted to
      the profession, making it important to understand what type of candidates it is attracting. A British
      Council study119 provides useful insights on candidates to become teachers. It used a mixed-methods approach,
      which included a sample of 2,006 teacher trainees studying in 20 education colleges,120 to explore who becomes
      a teacher and why. This section highlights key results in relation to background, motivation, expectations,
      satisfaction, and difficulties.

      237.	 Looking at the background of teacher trainees in Myanmar, slightly less than two-thirds come
      from the middle class. About 40 percent of respondents had a father involved in manual labor or agriculture,
      and 57 percent had a father in a middle-class profession. (Of this group, 6 percent had a father who was a
      teacher or employed by the education department.) Almost 50 percent of students had mothers who were
      housewives, and 27 percent had mothers who worked as manual laborers or in agriculture. However, 26 percent
      had mothers with a middle-class job (of which 8 percent were teachers) or were self-employed.

      238.	 Almost half of the students said that their main motivation in wanting to become a teacher
      was to serve their country or contribute to society. This was followed by 17 percent who wanted to earn a
      regular salary (figure 27).

      Figure 27:      Students’ primary motivations for entering the teaching profession



               To serve my country / I want to contribute to society                                            45%
                        To have a stable job and earn a regular salary                        17%
                          My parents wanted me to become a teacher                      11%
                                                          I like children            8%
                                                         To help others              7%
                          Because it is a respected position in society         3%
                                    I come from a family of teachers           3%
                                         More than one reason above            2%
                                    It is easy to get a job as a teacher      1%
                                          My teachers encouraged me           1%
                I did not want to become a teacher - I had no choice          1%
                    I was unable to get into higher paying profession        0%
                                                                        0%       10%      20%       30%   40%   50%


      Source: Lall, 2015, “Becoming a Teacher in Myanmar.”
      Note: Sample size for figure was 2,006 respondents.




      119  M. Lall, 2015, “Becoming a Teacher in Myanmar.”
      120  The sample surveyed approximately 100 trainees in each college.


114
239.	 Reflecting the motivation of wanting to serve their country, almost 70 percent were happy
to accept the location where they were sent by the Government of Myanmar. Respondents were asked
where they wanted to teach once qualified, and asked to choose between where their family was located and
where the Government needed them (figure 28). The large percentage who wanted to go where needed seems
related to an overarching sense of nationalism and personal responsibility toward the development of their
country. While these responses should encourage the Ministry of Education regarding deployment needs, many
hardship areas still require incentives to place and retain teachers. This is touched upon later in the chapter.


Figure 28:     Trainees’ choice of location between family and government need (percent)




                                                 Close to
                                                  family
                                                   31%
                                                             Where the
                                                            Government
                                                              needs
                                                               69%     K5&%&'85&'
                                                                       L/=&%1?&18'
                                                                          1&&.3'M
                                                                           FNOM
Source: Lall, 2015, “Becoming a Teacher in Myanmar.”
Note: Sample size for figure was 2,003 respondents.



240.	 When asked to specify what their personal location of choice would be, one-third chose small
urban areas and nearly one-third chose rural areas. The remaining candidates had a preference for large
urban (19 percent) and remote (14 percent) areas, while only 4 percent indicated a preference to serve in ethnic
or border areas (figure 29). Although the differences between male and female respondents was not large, a
higher proportion of women (21 percent) preferred large cities, compared to 16 percent of men; while slightly
more men than women chose remote areas (17 percent against 13 percent).




                                                                                                               115
      Figure 29:     Students’ personal preference for location of school (percent)



                                                                            16%
                            Urban areas (large city)
                                                                                  21%
                                                                                          32%
                            Urban area (small city)
                                                                                           33%
                                                                                         30%
                                        Rural areas
                                                                                        29%       Male
                                                                             17%
                                      Remote areas                                                Female
                                                                       13%
                                                              4%
                              Ethnic/border areas
                                                              4%
                                                         1%
                        More than one Preference
                                                         1%
                                                    0%       5% 10% 15% 20% 25% 30% 35%

      Source: Lall, 2015, “Becoming a Teacher in Myanmar.”
      Note: Sample size for figure was 1,987 respondents.



      Entry requirements for teaching
      241.	 Entry requirements into the Myanmar teaching profession are low, compared to other
      regionally high-performing countries, and as yet are not equitable. Currently the minimum requirement
      for admission into a teacher preparation program is high school graduation. However, schooling in Myanmar
      starts early (at age five) and ends at grade 11. This means that students begin their teacher training at a younger
      age than other countries in the region. The length of teacher preparation for primary teachers is also very
      short, with a minimum requirement of only one year of training to qualify for a certificate in teacher education
      (primary school level). Most teachers at the 20 Education Colleges and the two Institutes of Education, and
      the brightest students from the University for the Development of National Races for the Union, go on to
      a second year of training to qualify for a university diploma in teaching. These requirements are comparably
      very low; most neighboring countries require four years of training. As a result, they could potentially challenge
      educational goals of increasing teacher quality with the influx of very young, inexperienced teachers into the
      system. Additionally, there are two states without education colleges, Chin State and Kayah State, which makes
      it difficult for students from these states to attend one.121

      242.	 Qualifications differ by education level. Currently, the minimum requirement for applying to be
      a high school teacher (senior assistant teacher level) or an educational administrator is a bachelor’s degree in
      education. This degree is only offered to people in lower Myanmar at the Yangon Institute of Education and
      to those in upper Myanmar at Sagaing Institute. Both Institutes are under the control of the Department of
      Higher Education in the Ministry of Education.




      121  JICA, 2013, “Data Collection Survey on Education Sector: Final Report.”


116
243.	 Those who obtain either a certificate of education or a primary assistant teacher certificate
are qualified primary school teachers. Those who obtain a two-year degree in teacher education, a one-year
diploma in teacher education competency, a junior assistant teacher certificate, and a postgraduate diploma in
media of art are qualified middle school teachers, although they start their career as primary assistant teachers
after graduation. After five years as primary school teachers, they can apply for promotion to junior assistant
teachers at the middle school level. Lastly, those who obtained a bachelor’s degree in education or a higher
degree from an Institute of Education are eligible to apply to be a senior assistant teacher at the high school
level, or a township or assistant township education officer (TEO and ATEO, respectively) or higher.

244.	 While the teaching qualification periods needed for Myanmar’s primary and junior secondary
schools are short by international standards, there are plans to increase them from the current one year
(primary) and two years (junior secondary) to four years. This will require restructuring the curriculum
at the Education Colleges. Teacher degree courses have been extended to five years, with the additional year
focused on instructional skills.

The process of recruitment and selection
245.	 The selection process of teacher candidates has undergone changes in recent years, in part due
to restructuring of departments. Whereas previously the (now defunct) Department of Planning and Training
played a central role, the Department of Teacher Education and Training (DTET) has now taken up many of
its responsibilities. Education Colleges and Institutes of Education send their list of candidates to DTET for
certification. A full list of newly certified teachers is compiled and given to DBE. The Educational Committee,
formed by DBE and chaired by the director general, deploys (where needed) the newly certified teachers. Region
and state education offices (REO and SAO, respectively) deploy teachers to each township education office by May,
with an official appointment letter, so that they can start teaching at the beginning of the academic year (1 June).

246.	 There is a process for issuing education (or teaching) certificates. After completing the teacher
training courses (for a two-year degree in teacher education or a one-year diploma in teacher education
competency) at one of the Education Colleges, the trainees are evaluated by the Education College Board,
chaired by the director general of DTET. Based on the results from the final examination (worth 40 percent)
and other criteria such as bloc teaching, course attendance, and practical assessments (worth 60 percent), DTET
issues teaching certificates to the students. A list of newly certified teachers is sent to DBE. Of 7,000 trainees
who graduate from the Education Colleges every year, the top 500 with the highest marks (7 percent of the
total) are recommended for admission to the two Institutes of Education.

247.	 Another means of entry into the teaching profession is as a daily wage teacher. These contract
teachers are uncertified and variously qualified—from having a bachelor’s or master’s degree to just having
graduated from secondary school. They receive about one month of training and are employed at a lower salary
without benefits. After about one year of active teaching, they are eligible to become permanent staff, as has
happened with the DWTs hired in 2013 and 2014. While state and regional education officers have a greater say
over in the hiring and dismissal process of DWTs, their entry into the profession is markedly easier than those
who opt for teacher preparation programs.

248.	 The recruitment process for daily wage teachers was undertaken at the respective regional,
state, and division education offices, in cooperation with local government and the Department of
Basic Education. The minimum qualification to apply to urban area schools was a graduate degree, or a
secondary-school certificate for rural and remote areas. Assignments to schools were proposed by state and
township education offices, in consultation with the regional and division education offices. The proposal was
then submitted to DBE, which issued the orders for teacher assignments.

                                                                                                                   117
      249.	 There are also important specialized categories of teachers. A program of local language teachers
      began in the 2014-2015 school year and, by the 2016-2017 school year, there were a total of 20,006 local language
      teachers covering 31 of Myanmar’s 49 main local languages. They earn MMK 30,000 per month for 10 months of
      the year. Another small but important category is voluntary teachers in the internally displaced person (IDP) camps
      of Rakhine. These teachers were previously under the Ministry of Border Affairs, but are now the responsibility of
      the Ministry of Education. There are 337 teachers in 29 IDP camps, with 291 primary level teachers for 224,442
      students, 33 junior secondary teachers for 285 students, and 13 senior secondary teachers for 18 students. Primary
      school teachers receive a salary of MMK 150,000 per month, middle school teachers receive a salary of MMK
      165,000 per month and high school teachers receive a salary of MMK 180,000 per month.

      250.	 There are also teachers who are financed by the community, who do not go through a formal
      hiring process run by the Ministry of Education. They are not included in the standard set of statistics
      because the Government of Myanmar is interested in how many teachers it has to pay. From the 2015 school
      survey by the World Bank, the percentage of community teachers was approximately 3 percent.

      Deployment and retention
      How teachers are deployed
      251.	 While the Ministry of Education collects data on teacher supply and demand, to date the
      data have not been used to inform the design of a responsive teacher-deployment system. And while
      the current teacher management and promotion system treats men and women equally, men are more likely to
      progress to senior management positions, despite the preponderance of women in the teaching profession.122
      Furthermore, there is widespread consensus among senior Ministry officials that the planned reforms for
      kindergarten through grade 12 will require additional teachers, who are placed using an evidence-based teacher
      management, planning, and deployment system.

      252.	 The National Education Strategy Plan acknowledges that the Government of Myanmar must
      increase—and upgrade—its capacity to recruit, train, deploy, and promote teachers. It further emphasizes
      that particular attention must be paid to the status of primary school teachers, most of whom are women. In
      secondary education, progression and promotion should “be made within a school level, based on experience and
      performance and with equal recognition given to teachers specializing in each school level and subject.”123

      253.	 The CESR report on teacher education in secondary education recommends that “the system
      of teacher supply (initial training, recruitment, and deployment) [be] strengthened and matched to
      demand, alongside improved methods of projection, quality assurance and performance monitoring.”
      However, any efforts to address current teacher deployment and promotion policies, and disparities in teacher
      supply across rural areas, need to be preceded by further detailed analysis of teacher “qualification and
      deployment by school type, by subject, by school size, by gender, and by urban/rural differences.”124

      254.	 Currently, teacher deployment and promotion are not linked to performance, but instead are
      based on years of experience. This results in an inequitable and inefficient system that drains quality teachers
      from primary schools where they are needed the most. (The career development of teachers is specified in
      more detail below.)

      122  The 2008 Myanmar Constitution states that men and women have equality in almost all civil service professions (chap. 8, arts.
      350 and 352).
      123  Ministry of Education, 2014a, “Comprehensive Education Sector Review (CESR) Phase 2 Report on Primary Education.”
      124  Ibid.


118
255.	 Myanmar’s retention rate of teachers overall is very high, but there are challenges with
retaining teachers in specific geographic locations and managing the high rate of transfers across
school levels. Recorded teacher attrition rates vary widely across countries. In OCED countries, the teacher
attrition varies from 2 percent to 14 percent per year.125 As indicated in table 11 (chapter 5), only 1.6 percent of
non-gazetted staff in basic education (the large majority of which are teachers) left the civil service.126 Of these
departures, 79 percent was due to retirement and only 7 percent was due to resignations. There are challenges
in retaining teachers in remote and hardship areas, and managing the movement of teachers to different levels,
exacerbated by the existing promotion system.

256.	 As is the case in many countries, retaining teachers in hard-to-staff schools and in certain
specializations can be difficult. Housing, transportation, and communication difficulties are some of the
obstacles to attracting and retaining teachers in remote locations. Most teachers deployed to remote schools stay
only as long as it takes to get a promotion elsewhere in the system. Further, shortages of bilingual teachers who
can teach in areas with ethnic populations or teachers who are proficient in specific disciplines, such as English
language or early childhood development, suggest that the teacher supply is not meeting the demand.

257.	 The regional allowance for hardship areas is one incentive provided by the Government
of Myanmar to keep staff (including teachers) in challenging areas. While the allowance does help
compensate for a difficult area, it is yet to be seen how effective it is in retaining teachers. Further measures are
likely to be needed. Beyond incentives, other countries have improved placement by targeting and programs to
recruit and train local candidates from the hardship area as teachers.

258.	 The promotion system also interferes with staffing needs. Teachers almost have no other incentive
but to apply for promotion from primary to middle to high school specializations, given the pay disparities
between these levels. This promotion system is seen as detrimental in many respects. Teachers must move
schools frequently in order to be promoted, and the best teachers tend not to remain in primary schools, which
is arguably where the best teachers should be staffed. To address this issue, the new Government is proposing
to restructure the progression and promotion system by establishing career tracks within levels and offering
new incentives to teachers to specialize in specific school levels.

Human resource planning
Teacher supply and demand
259.	 Teacher turnover is low, but system expansion and school staffing policies have created a high
demand for teachers. The total annual personnel turnover of the Department of Education is 5,177, which
consists of 1,078 high school teachers, 3,431 middle school teachers and 665 primary school teachers. But the
number of children enrolled in basic education schools increased by approximately 400,000 students (from
8.2 million to 8.6 million) between 2011 and 2014. Enrollment is increasing largely due to the government’s
free and compulsory education program that was introduced successively starting with primary education in
2011-2012, middle school education in 2012-2013 and high school education in 2015-2016.127 In addition, the
government implemented a policy on the minimum number of teachers per primary school (discussed below).
These factors have created an increased demand for teachers.




125  UNESCO, 2010, “Teacher Attrition in Sub-Saharan Africa: The Neglected Dimension of the Teacher Supply Challenge.
126  This percentage is from the period October 2015-September 2016.
127  National Education Strategic Plan (NESP) 2016-2021, p. 36.


                                                                                                                        119
      260.	 The system produces and upgrades teachers through various programs. In FY 2015-2016, there
      were 9,172 trainees in Pre-service Primary Teacher Training (PPTT), 5,798 undertaking a Diploma in Teacher
      Education (DTEd), and 24,746 in distance education for primary school teachers. In FY 2016/2017, there were
      5,517 in PPTT, 6,028 in DTEd, 22,361 in distance education for primary school teachers and 9,201 in distance
      education for middle school teachers. Trainees are produced in order to fulfill the number of teachers needed
      by the Department of Basic Education. Based on the capacity of education colleges, teachers force, training
      buildings and canteens, trainings are conducted in 22 education colleges.

      261.	 Selection of applicants includes targeting for particular needs. The current plan of the Ministry
      of Education is to fulfill the demand for teachers and to prioritize applicants from ethnic groups (e.g., Shan,
      Kayah, Kayin and PaO) for the DTEd and PPTT trainings. With the recommendation from the region/state,
      applicants are selected based on their results. Regarding applicants with disabilities, in FY 2016/2017, partially-
      disabled applicants were selected. Overall, 40 percent of successful applicants are male and 60% are female. In
      PPTT, 30% are male and 70% are female.

      262.	 Additionally, daily wage basis teachers are hired three times per year, but these teachers require
      additional training. In order to solve the problem of the increasing number of teachers without certificates,
      training-of-trainers sessions on “one-month township-based primary school teacher training” are conducted
      by trainers from education colleges, senior teachers from high schools, and head masters of middle schools.
      Trainees can join the one-year distance education course on primary school education after completion of the
      township based training. These trainees then received a Diploma in Teacher Education. Trainees also have to
      undertake practical exercises in classrooms. The distance education for middle school teachers is a diploma
      program for those who have not obtained teaching certificates. They can join the course only after completion
      of the distance education for primary school teachers course. After the completion of the distance education
      for middle school teachers, they can attend a two-year program at the University of Education to obtain B.Ed.

      263.	     The Education Colleges cannot currently produce the number of teachers demanded. In
      particular, with the rapid increase in teacher hiring since 2013, the Education Colleges have not been able to
      produce sufficient numbers of graduates. In 2014, the number of graduates was approximately 8,115, but the
      number of teachers hired in recent years has been over 40,000 a year. This prompted the hiring of 73,000
      DWTs between 2013 and 2015, who did not go through the education colleges. The Ministry of Education
      opened new Education Colleges in Lashio (Northern Shan State) in 2014 and in Loikaw (Kayah State) in 2015,
      to increase the number of trained teachers for basic education schools. Still, the numbers of graduates will fall
      short of the total number of teachers needed over the next two years, so more DWTs will be hired to fill the
      gap. Within two to three years, the teacher work force should stabilize and large batch hiring will no longer be
      necessary.

      264.	 A key driver in the need for more teachers is the policy of having at least five teachers in every
      primary school. An extensive analysis in 2014 of teacher need, based on the policy, found that 61.3 percent of
      the 42,636 schools in Myanmar that had primary school students fell short of the five-teacher policy.128 Half of
      the schools had 60 or fewer students, and 81.3 percent were schools with 100 students or fewer. The estimated
      shortfall in these schools was calculated to be 65,785 teachers—far more than the 30,000 DWTs and 8,115
      Education College graduates hired in 2014, but there has been subsequent hiring to reduce the shortfall further.




      128  Muta, 2014, “Supply and Demand of New Teachers.”


120
265.	 The policy of five teachers per primary school has trade-offs. The policy certainly meets its
intended goal of providing more teachers to remote and understaffed schools, and giving students more
personalized attention by lowering the student-teacher ratio. It also reduces the need to undertake multi-grade
teaching. But all this comes at a cost. As figure 30 illustrates, most schools in Myanmar are very small. The
average primary school has only 121 students, and the median number of students is 85. Staffing the small
schools with at least five teachers means that many schools will have extremely low student-teacher ratios. In
figure 30, there are 11,000 schools with 50 students or fewer, meaning that they have student-teacher ratios
of 10 to one or less. From a staffing measure, this is inefficient and has budget and affordability implications.
There is an additional challenge when teachers get placed in the smaller, more remote schools: they tend to
be DWTs or inexperienced teachers. This is not to say the policy should be changed, but rather that the costs
should be recognized and policies revisited in order to ensure that schools are staffed with quality teachers.


Figure 30:      Allocation of primary schools by size category


          15,000
          14,000       13,500
          13,000
          12,000
                 10,900
          11,000
          10,000
           9,000
                            7,900
           8,000
           7,000
           6,000
           5,000
                                  3,900
           4,000
           3,000                       2,200
           2,000                            1,150 800
           1,000                                      500 300 300 150 100 90 80 70 70 50 20
               0
                    50 00 50 00 50 00 50 00 50 00 50 00 50 00 50 00 50 00
                  1- 1-1 1-1 1-2 1-2 1-3 1-3 1-4 1-4 1-5 1-5 1-6 1-6 1-7 1-7 1-8 1-8 1-9
                      5 10 15 20 25 30 35 40 45 50 55 60 65 70 75 80 85


Source: Muta, 2014, “Supply and Demand of New Teachers.”


266.	 The teacher promotion system also impacts supply and results in “a constant loss of
competent primary school teachers to middle schools.”129 As a Japan International Cooperation Agency
report notes, “under the current teacher development model in Myanmar, it is difficult for the government to
keep experienced and highly motivated teachers working in primary education.”130 This can be seen in the gap
in average years of experience, with primary teachers having only 5.5 years of experience on average compared
to 14.4 years for junior secondary teachers.131 At the same time, it is recognized that “there is a shortage in
supply of secondary school teachers and this is anticipated to increase as enrolment in middle and high school
increases,”. Secondary schools also generally face a mismatch in the supply of teachers by subjects required
(e.g., math and English language).132


129    Muta, 2015, “Regional Disparities.”
130    Ministry of Education (with JICA), “CESR Phase 2 Report on Teacher Education.”
131    Results from the 2015 World Bank and Ministry of Education Myanmar school survey.
132    Ministry of Education, 2014b, “Secondary Teacher Education and Continuing Professional Development.”


                                                                                                                121
      Expansion of kindergarten and grade 12, and the impact on human resource
      planning
      267.	 With the introduction of kindergarten in 2016, the Government of Myanmar is introducing an
      unusual step for five-year-old students, who would have started grade 1 under the previous structure.
      This means that there will not be a cohort of grade 1 students in this initial year. All schools will have a
      kindergarten added, and teachers from grade 1 will teach kindergarten. In effect, in 2016, no new teachers are
      required to fill the kindergarten positions.

      268.	 There will be two additional grades, which (although they are not starting immediately) will
      need to be staffed with additional teachers. The planning to address this unusual implementation requires
      careful planning, following key assumptions. The Ministry of Education currently does not have a strong
      system for forecasting, but this introduction of kindergarten and grade 12 will make effective planning and
      projecting even more crucial.

      269.	 In addition, restructuring the secondary education system will have an impact on tertiary level
      education, as there will potentially be two years with no high school graduates to enroll in pre-service
      teacher education programs. The first “zero” year is when grade 12 is introduced, and the second zero year
      is one year before the first kindergarten cohort graduates.133

      Teacher working hours
      270.	 A comparison of the hours that teachers work per week demonstrates that Myanmar tends to
      be in line with other ASEAN countries. As can be seen in table 21, the hours that Myanmar teachers work
      in grade 3 and grade 11 are below average, but above average for grades 5 and grade 9. Vietnam and Indonesia
      generally have lower total hours than Myanmar, while Singapore, the Philippines, and Thailand generally have
      more hours.




      133  Ibid.


122
Table 21:       Teachers’ hours per week across ASEAN countries




                                                                                                                   Philippines
                                                           Cambodia




                                                                                                       Singapore
                                                                      Indonesia
                                                 Myanmar




                                                                                  Lao PDR




                                                                                                                                 Thailand
                                                                                            Malaysia




                                                                                                                                            Vietnam
                                       Average
 School
 grades




                                                                                                                                                      Japan
                   Subjects


  G3       Core subjects                  937       930       920     980*           455       990     1230        1500             960        700      746

           Co-curricular                  362       270       280                    525       390        240          300          540        245      469

           Total                       1267      1200      1200          980         980    1380       1470        1800          1500          945    1215

  G5       Core subjects                  910    1120         920        595         560       840     1170        1500             900        735      759

           Co-curricular                  425       280       280        525         600       480        300          400          600        280      501

           Total                       1335      1400      1200       1120        1160      1320       1470        1900          1500       1015      1260

  G9       Core subjects               1092      1260      1400          800      1170      1080       1160        1440             960        700      950

           Co-curricular                  475       315       350        480         450       480        440          540          840        350      500

           Total                       1567      1575      1750       1280        1620      1560       1600        1980          1800       1050      1450

  G11      Core subjects               1080      1350      1500       1215        1215      n/a**         800      n/a**            640        840    n/a**

           Co-curricular                  564       225       100        540         405                  800                    1160          720

           Total                       1644      1575      1600       1755        1620                 1600                      1800       1560

Source: JICA, 2013, “Data Collection Survey on Education Sector: Final Report,” table 3-27, “Teaching Hours per Week among
ASEAN Countries and Japan.”
* The Government of Indonesia defines total teaching hours only in lower primary level. Each School decides core subjects and co-
curricular subject distribution.
** Malaysia, the Philippines, and Japan use a credit system in the upper secondary level, so that the school curriculum varies in each
school.


Managing pay and compensation
Amounts and trends in teacher pay and compensation
271.	 Teacher salaries have increased substantially over the last three years; however, questions
remain as to how the salary scale affects teacher motivation, placement, career development, and
performance. Table 22 shows teachers’ salaries in public schools (in MMK per month) for FY 2015/2016.
Teachers are paid on the same scale as other civil servants (see chapter 4). Primary teachers, who make up the
highest proportion of teachers in Myanmar, have a base salary of between MMK 150,000 and MMK 160,000
per month. Those teachers working in remote areas make between MMK 70,000-82,000 more than their base
salary thanks to the regional allowance for hardship areas.




                                                                                                                                                              123
       Table 22:      Base salaries and regional allowances for teachers, head teachers, and township education officers,
                      FY 2015/2016

                                                                                         Regional allowance for hardship areas
                                                      Base salary
          Staff (public school)                                                           From Feb. 2016 onward                  Up to
                                         Minimum       Increment*     Maximum        Fairly hard      Hard         Hardest      Feb. 2016
        Teachers
        Primary assistant teacher          150,000           2,000      160,000         70,000         76,000        82,000         64,000
        Junior assistant teacher           165,000           2,000      175,000         67,000         73,000        79,000         61,000
        Senior assistant teacher           180,000           2,000      190,000         64,000         70,000        76,000         58,000
        Head teachers
        Primary head                       165,000           2,000      175,000         67,000         73,000        79,000         61,000
        Junior head                        250,000           4,000      270,000         76,000         82,000        88,000         70,000
        Senior head                        250,000           4,000      270,000         76,000         82,000        88,000         70,000
        Education officers
        Assistant township                 180,000           2,000      190,000         64,000         70,000        76,000         58,000
        education officers
        Department township                250,000           4,000      270,000         76,000         82,000        88,000         70,000
        education officers
        Township education                 280,000           4,000      300,000         86,000         92,000        98,000         80,000
        officers

      Sources: Ministry of Finance Notification No. 12/2016, 16 February 2016, establishes revised scale for regional allowance); Ministry of
      Finance Notification No. 1058/2015, 10 April 2015, establishes base salary scale and initial regional allowance scale for FY 2015/2016.
      * Increment (step) is awarded every two years, not every year.


      272.	 Daily wage teachers are paid MMK 3,600 per day for working days only, with no leave benefits.
      This is equivalent to the official minimum wage per eight-hour work day, as of September 2015. DWTs in
      hardship areas earn MMK 5,000. Their monthly payment is charged to budget code “0301 labor charges,”
      under the “03 goods and services” budget line, which is not the usual budget code for the wage bill (“0101 pay
      and allowances”). The World Bank estimate of monthly earnings for a minimum wage worker with a five-day
      week is MMK 77,400, which is significantly lower than the entry-level civil service salary of MMK 150,000 for
      a primary school teacher.

      273.	 Teachers are public servants with salaries that are determined by the civil-service wage scale.
      As such, the decision regarding teachers’ salaries remains a highly centralized one. The wage scale includes
      increments related to years of service or placement, the school level at which one teaches, and placement at
      hard-to-staff schools. As a large proportion of the teacher work force is comprised of women, information on
      how teacher salaries compare to other similar professions and to other civil servants across different sectors of
      the Myanmar government will offer a better sense of gender equity, with regards to compensation in the civil
      sector.




124
274.	 With the recent annual increases, teacher salaries have risen substantially. As of 2013, Myanmar’s
extraordinary practice of rarely changing wage amounts has been replaced with annual nominal increases to the
wage grid. As can be seen in table 23, salaries have steadily increased. The large increase in FY 2015/2016 is
due, in part, to incorporating the MMK 30,000 additional allowance (introduced in FY 2012/2013 and provided
through FY 2014/2015). Taking this incorporation into account, salaries still approximately doubled within
three years.

275.	 Unfortunately, there is little rigorous analysis on wages, including how teacher wages compare
to other professions requiring the same level of qualifications and years of experience. As mentioned
in chapter 5, the 2015 labor force survey, which Myanmar conducted after a 25-year pause, could shed light
on how teacher salaries compare with other professions. At the time of writing, the database had not yet been
released and as a result analysis was not possible.




                                                                                                             125
126


       Table 23:     Base salary scales for civil servants in education, FY 2012/2013 to FY 2015/2016 (in MMK per month)


                                                   FY 2015/2016                            FY 2014/2015                           FY 2013/2014                           FY 2012/2013
       Positions                          Min.       Increment      Max.         Min.        Increment     Max.         Min.        Increment     Max.          Min.       Increment      Max.

       Teachers
       Primary assistant teacher         150,000         2,000     160,000        87,000        1,000       92,000       67,000        1,000       72,000       47,000        1,000       52,000
       Junior assistant teacher          165,000         2,000     175,000        93,000        1,000       98,000       73,000        1,000       78,000       53,000        1,000       58,000
       Senior assistant teacher          180,000         2,000     190,000        99,000        1,000     104,000        79,000        1,000       84,000       59,000        1,000       64,000
       Head teachers
       Primary head                      165,000         2,000     175,000        93,000        1,000       98,000       73,000        1,000       78,000       53,000        1,000       58,000
       Junior head                       250,000         4,000     270,000      140,000         2,000     150,000       120,000        2,000      130,000      100,000        2,000      110,000
       Senior head                       250,000         4,000     270,000      140,000         2,000     150,000       120,000        2,000      130,000      100,000        2,000      110,000
       Education officers
       Assistant township                180,000         2,000     190,000        99,000        1,000     104,000        79,000        1,000       84,000       59,000        1,000       64,000
       education officer
       Department township               250,000         4,000     270,000      140,000         2,000     150,000       120,000        2,000      130,000      100,000        2,000      110,000
       education officer
       Township education officer        280,000         4,000     300,000      160,000         2,000     170,000       140,000        2,000      150,000      120,000        2,000      130,000

      Source: Ministry of Finance notifications for relevant years.
      Notes: 1) In FY 2012/2013, FY 2013/2014, and FY 2014/2015, all civil servants received an “additional allowance” of MMK 30,000/month, on top of base salary. In FY 2015/2016, this amount was
      incorporated into the base salary and the allowance discontinued.
      2) The new non-gazetted grade added for FY 2015/2016 contains about 5,000 uniformed staff in the Ministry of Home Affairs and some state administrative offices.
      3) The increment (step) is awarded every two years, not every year.
      4) Allocation of positions to levels in the salary scale is done within each ministry, and may vary across ministries. Listed positions are examples only.
Customized tool for pay and work force planning to estimate impact
276.	 The wage-bill modeling tool developed in this study can be used to analyze important budget
considerations, such as the Ministry of Education’s plans to continue hiring a large number of new
teachers. The tool (discussed in chapter 3) allows for analysis and forecasting in order to determine impacts of
desired hiring scenarios. This is particularly relevant for education-sector budget projections, its wave of large-
scale hiring over the past three years, and its plans to continue hiring.

277.	 As an example, the tool can calculate the impact of further large-scale hiring of teachers on
Myanmar’s education system. There are further plans to hire approximately 80,000 teachers in the 2016-
2017 and 2017-2018 school years. Preliminary estimates using the work force model tool indicate that this
would increase total salary expenditure by 17 percent by 2017-2018. As figure 31 illustrates, the wage bill to
expenditure estimate would increase to 3.57 percent, compared to the 3.01 percent baseline.


Figure 31:     Preliminary wage bill to expenditure estimate of hiring an additional 80,000 teachers



                4.5
                4.0             3.90
                         3.57                     3.57
                3.5
                                           3.01                        3.01
                3.0
                                                               2.53                        2.58
                2.5                                                                                        2.25
                                                                                    2.15
                2.0                                                                                 1.86
                1.5
                1.0
                0.5
                0.0
                          2016-17           2017-18                 2018-19          2019-20        2020-21

                                                         Baseline        Forecast



Source: Pay and work force model developed by UNESCO in conjunction with the Ministry of Finance.




Electronic payments system
278.	 The Ministry of Education is in the process of developing an innovative electronic payments
system. Currently, heads of schools have to travel to townships to receive cash and disburse funds. There
are delays (especially for remote schools during the rainy season) and unpredictability in delivery. There are
also concerns that 100 percent of salary may not be reaching the teachers. A system is being designed to pay
teachers through bank accounts (formal banks, branchless banks, or other financial solution providers) with the
objective of increasing the transparency and convenience of payment to teachers. This builds on an ongoing
initiative to pay some 5,000 teachers through Kanbawza Bank (KBZ), a private commercial bank in Myanmar.


                                                                                                                  127
      Learning and development
      Standards of teacher competency and other policies relating to teacher quality
      279.	 The Ministry of Education, in conjunction with UNESCO, recently developed a teacher
      competencies framework and professional standards. They describe and explain what are considered to
      be the key characteristics and attributes of good teaching, and what is expected of teachers’ professional
      practice at various stages in their professional development. The domains include professional knowledge and
      understanding, professional skills and practices, professional values and dispositions, and professional growth
      and development.

      280.	 The framework and standards are being field tested and are expected to be completed in
      early 2017. Lack of professional standards makes long-term goals of teachers unclear, which increases the
      difficulty of figuring out a framework for continuing professional development. The implementation of
      the teachers’ competencies framework and professional standards will play a critical role in shaping teacher
      quality in Myanmar. The Education Promotion Implementation Committee also recommends implementing a
      promotion system based on teacher qualifications and experience, continuing education, and achievement of
      competency standards.

      Professional development and support opportunities for teachers
      281.	 Professional development in Myanmar is inconsistent, delivered on an ad hoc basis, and has
      not been effectively institutionalized. Professional development is delivered through the in-service teacher
      training program, offered by Education Colleges and Institutes of Education. However, criticisms of the
      program emerged from the rapid assessments undertaken for the CESR. DTET, under whose authority most
      of the Education Colleges operate, is reportedly understaffed and unable to effectively provide or oversee
      regular in-service trainings. They are offered on an ad hoc basis (when provided at all) and are expected to
      “cascade” outwards and downwards to other teachers.134 No data exists on whether these in-service trainings are
      equitably delivered, needs-based, or standards-based, and whether teachers are given any incentive to participate
      in professional development.

      282.	 In-service training for teacher certification is possible, helping to reduce the number of
      uncertified teachers in the system; however, the quality of the programs remains questionable. Teacher
      certification is a one-time occurrence, with no requirements for teachers to update their qualifications within
      areas of specialization. A system exists to monitor and evaluate the performance of head teachers and assistant
      township education officials, but there are persistent issues around adequate time, support, and proper training
      to conduct teacher evaluations. As such, evaluations are rushed and summative, leaving teachers to fend for
      themselves in terms of developing the skills to adjust to contextual or pedagogical issues.135 Further, the process
      for dismissing teachers for poor performance at work remains unclear.

      283.	 Another issue in teacher career development is the absence of a teacher education policy,
      which contributes to the lack of professional standards in the education sector regarding experience,
      responsibility, level of school, etc. In addition, a teacher appraisal system is also missing in Myanmar’s
      education system. A further problem is that only township education officers have the authority to report
      outstanding or underperforming teachers to higher authorities.

      134  W. Aung, F. Hardman, and D. Myint, 2013, “Development of a Teacher Education Strategy Framework Linked to Pre-Service
      and In-Service Teacher Training.”
      135  Ibid.


128
284.	 Sector reports recommend that the Ministry of Education overhaul its in-service teacher
development model. One report noted that basic education teachers “are conscious of the necessity [of
further training] and keen to attend it.”136 Suggested reforms include developing a school-based, in-service
training model, establishing a national center for teacher professional development,137 and possibly creating in-
service teacher education units in each region and state that can provide regular courses.138 Teacher professional
development should also be linked to promotion and salary scales.

285.	 In 2014, to address the lack of systematic provision of continuing professional development
programs, the Ministry of Education, UNICEF, and its Myanmar Multi-Donor Education Fund
partners designed and implemented a number of in-service teacher training programs, focused on
strengthening teacher performance and increasing student learning. Among these pilot programs is
the school-based in-service teacher education, or SITE, model. SITE provides a framework for professional
development that uses a blended learning approach. It combines school-based sessions (organized by the head
teachers), teachers’ own outside reading and reflection on teaching practices, and experiential learning.

286.	 New teachers, in particular, require an intense amount of support during their first few years
of teaching.139 School meetings offer a unique opportunity for timely in-service trainings, but currently these
meetings are generally used to convey information from the Ministry of Education or DBE.

287.	 In 2016, the Ministry of Education began a program of teacher mentoring to support new
teachers. Professional, full-time mentors are hired by township education officers to visit multiple schools
in the township, working individually with the new teachers, observe their lessons, help them set goals, and
provide guidance and support. This program is being implemented in 40 townships and is scheduled be phased
in nationally within four years.

288.	 The planned introduction of the new curriculum, over a fast-tracked timeframe of six years,
will demand that a quality, cost-effective, in-service training program that reaches all teachers be
implemented. In addition, both pre-service and in-service teacher education also require longer-term reforms
to enable teaching that bridges theory and practice, and encourages teachers to read and reflect on their own,
and apply what they read to their teaching practices.

Progression and promotion
Teachers’ career progression and the education promotion system
289.	 Before 1998, the basic teacher career path was linear, from primary, to junior, to senior-assistant
teacher and on. After years of teaching experience and further study to upgrade teaching certificates and
degrees, teachers advanced in their careers and increased their salaries. While the same linear path still exists, the
teacher career path has become more flexible and complicated through the introduction of several entry points
to the teaching profession. It is assumed that university graduates still face difficulty in getting a job, compared
with students from the Institutes of Education and Education Colleges, who are assured of getting a teaching
job if they accept deployment to any area.



136  Ministry of Education (with JICA), 2014, “CESR Phase 2 Report on Teacher Education.”
137  Ibid. The Ministry of Education and JICA’s report suggests that this national center could perhaps be based at the existing Basic
Education Resource Development Center.
138  Ibid.
139  E. Vegas et al, 2012, “What Matters Most for Teacher Policies: A Framework Paper.”


                                                                                                                                     129
      290.	 Due to the ascending salary system, once teachers start their careers, they immediately begin
      looking for a better position in a higher level school. Every time a teacher moves to a higher position, the
      teacher is expected to take training courses to upgrade knowledge and skills. For instance, a primary assistant
      teacher takes a diploma course at an Education College to qualify as a junior assistant teacher, and then takes a
      degree course at an Institute of Education to become a senior assistant teacher or other position. Unfortunately,
      the chance to practice educational theory in class only comes through teaching the bloc curriculum. If the
      curricula of the Education Colleges and Institutes of Education do not meet teachers’ needs, and teachers are
      (in effect) taking classes just to move to a higher salary status, pedagogical improvement will not be possible,
      even after 2-5 years of the program. NESP is reviewing the Education College and Institute of Education
      curricula to meet the needs of teaching in class.

      291.	 The number of teaching posts at middle and secondary schools are about one-third the
      number of posts in primary schools (this does not take into account Institute of Education graduates
      employed as higher secondary-school teachers). Transferring to a higher school is not easy, and many
      teachers are forced to stay at primary schools, even though they have teaching certificates that qualify them for
      a higher teaching position and salary.

      292.	 The promotion system has various negative consequences and is in dire need of reform. To
      address this issue, the new Government of Myanmar is proposing to restructure the progression and promotion
      system, but it must ensure that high quality, experienced teachers remain in primary schools. This requires a
      progression and promotion system with salary structures that are equalized in all school levels. It involves
      creating teacher cadres and separating the primary school teachers from the middle and secondary schools. It
      also involves changing the recruitment criteria for middle and secondary schools. It may make sense to recruit
      only via competition among university graduates, with no weight given to primary school experience.

      Teacher performance management and appraisal
      293.	 The teachers’ evaluation system is not yet established enough to promote effective practice.
      The current system puts the onus of teacher evaluation on head teachers and assistant township officers, who
      may or may not have the time, support, and training for it. They often complain of having to deal with a host
      of maintenance and budget issues, which leaves little time for teacher evaluations. Further, institutional support
      for teacher evaluations does not yet include a proper format for the evaluation (including aspects of the child-
      centered approach, etc.), or guidance and training for head teachers and assistant township officers on how to
      use teacher evaluations to monitor and improve teaching practices.140

      Overall education policy
      294.	 Clearer, more formal policies on teachers and overall education policy are necessary. A System
      Approaches for Better Education Results (SABER) teacher workshop,141 held in October 2015, discussed key
      teacher issues and policy goals. One of the most important general findings was that education policy in
      Myanmar has often been treated informally, without clearly defined laws, regulations, decrees, and other policy
      instruments to document policies and make them widely available. A key recent step was the establishment of
      a National Education Policy Commission in September 2016, which will play a key role in not only defining but
      also formalizing policy.


      140  M. Lall et al., 2013, “Teachers’ Voice: What Education Reforms Does Myanmar Need?”
      141  The SABER teacher workshop was attended by representatives of all key Ministry of Education departments, as well as
      development partners and members from CESR.


130
Education sector options for the way forward
295.	 Many positive steps have been taken by the Government of Myanmar in recent years with
regard to teachers. Salary increases and efforts to strengthen the work force numbers, development of teacher
standards (which are now being field tested), and establishment of the National Education Policy Commission
are just a few of the key steps which are laying the foundation for the teaching profession of the future.
Major reforms of teacher education will continue in the coming five years, through the implementation of a
new education law, with updated rules and regulations, and the NESP for 2016-2021. Among other things,
the reforms include introducing a new curriculum (kindergarten and grade 12), revising student assessment,
updating teaching pedagogy, and establishing a school-level quality assurance system.

296.	 RECOMMENDATION 7.1: Reforming the teacher progression and promotion system should
be a top priority. The key issue for retaining teachers has less to do with keeping them in the system and more
with ameliorating the constant movement of teachers within Myanmar’s education system. The promotion
system interferes with staffing needs because it forces teachers to move frequently as they apply for quick
promotion from primary schools to middle and high schools, where the salaries are higher. This system also
means that the best teachers tend to not remain in the primary schools, which arguably is the most crucial level.
The way forward is to have a system of career paths and promotions, and equal salary structures in all levels.
A system of directly hiring teachers into middle schools is also required to solve the constant movement of
primary teachers to middle schools.

297.	 RECOMMENDATION 7.2: A key issue to focus on is managing the rapid increase in teachers
and properly hiring both Education College candidates and daily wage teachers. The relatively new
process of DWT recruitment and selection, in particular, encompasses many difficulties. This wave of new
teachers will shape the teacher work force for many years, and poor or lower standards for selection can have
serious implications. In addition to defining a process that recruits and selects high quality candidates, a support
system for new teachers is essential. The new teacher mentoring system will play a critical role.

298.	 RECOMMENDATION 7.3: While the Government of Myanmar collects data on teacher
supply and demand, to date it has not used the data to inform responsive deployment of teachers.
Particularly, as the number of teachers expands rapidly and attempts are made to fill in staffing gaps, proper
identification of needs and placement is essential. It is a specific deployment challenge that many young,
inexperienced teachers (often DWTs) tend to be placed in the more remote schools. The teacher mentoring
program will be critical in supporting these new teachers to boost their morale, as well as for skills building.

299.	 RECOMMENDATION 7.4: Being able to forecast teacher supply and demand is critical.
Current planning is inadequate to ensure a smooth supply of teachers to meet growing demand, as it is only
cursorily linked to pre-service teacher education intakes. The addition of kindergarten and grade 12 will also
have an impact on tertiary education, as there will be two separate years when no graduates enter the tertiary
education level. More robust forecasting and planning systems will be critical to smoothly navigate the changing
education landscape.

300.	 RECOMMENDATION 7.5: The Government of Myanmar needs to be able to strike a balance
between higher pay and more staff, between across-the-board pay increases and targeted increases,
and between wage expenditures and other expenditures. Recent salary increases have significantly
boosted teacher pay, but the perception continues that teachers’ pay is low. More thorough analysis is needed to
determine whether teacher pay is actually high or low, in order to inform decisions on the trade-offs mentioned.
The impact of the increased hiring of DWTs must be carefully considered: although they are paid less, they are
typically converted to regular teachers after one year. Currently the increase in teaching staff, along with higher

                                                                                                                   131
      pay, means trade-offs in wage expenditures versus other expenditures. (See chapter 5, figure 16, “Trade-offs:
      Expenditures and compensation.”)

      301.	 The customized tool for pay and work force planning can play a key role in projecting scenarios
      and determining the impact of policies and decisions related to pay and hiring, and their costs relative
      to overall education spending. The scenarios of higher pay versus more staff can be analyzed and the impact
      of the wage bill on other education spending can be explored.

      302.	 RECOMMENDATION 7.6: New teacher competency standards will be a core policy that will
      link to all aspects of teacher development, as well as performance management and appraisal. Often
      teacher standards are defined, but are then not linked to pre-service and in-service training, or to teacher career
      progression and promotion. It will be critical to link the teacher standards throughout the system and have
      them tied to meaningful results.

      303.	     RECOMMENDATION 7.7: In-service professional development will also play a critical role
      in supporting teachers, particularly the daily wage teachers. Support in the form of teacher mentoring
      will be essential for teachers in their early years. The teacher professional development program is fractured
      and needs to be strengthened in order to provide consistent, coherent, professional development opportunities,
      working both though school clusters and traditional training.

      304.	 RECOMMENDATION 7.8: The current system is not yet well established in terms of
      promoting effective practice. It relies on the assistant township officers and head teachers, but faces many
      issues in terms of adequate time, support, and proper training to conduct teacher evaluations. Getting the
      system to function will require capacity building on the part of the assistant township officers and head teachers,
      as well as allocating priority time and training to teacher evaluations.

      305.	 RECOMMENDATION 7.9: Clearer, more formal policies on teachers and overall education
      policy are necessary. Education policy in Myanmar must be treated more formally, defining clear laws,
      regulations, decrees and other policy instruments to document policies, and making them widely available. The
      newly established National Education Policy Commission can play a key role in not only defining, but also
      formalizing policy.

      306.	 The teacher situation in Myanmar is dynamic and presents many positive opportunities, but
      also many challenges. Issues of pay, compensation, and human resource management will shape the future
      of the educational system. Trade-offs must be weighed and links across policy areas must be made in order to
      have a robust system that supports teachers and the education system as a whole.




132
CHAPTER 8
THE WAY FORWARD: OPTIONS AND RECOMMENDATIONS
307.	 This review was launched in response to the Government of Myanmar’s request for analytical
support to make compensation and human resource policies more evidence-based. Thus the overarching
objective has been to provide the best possible analysis and to bring to bear international practice and expertise
on Myanmar specific problems. This approach reflects a fundamental value: policy decisions should be
informed by robust evidence. It is up to Myanmar’s policy makers to weigh that evidence, take into account any
other considerations, and make the choices that best serve the country’s needs.

308.	 This review has presented as comprehensive a picture as possible of the Myanmar civil-
service pay and compensation, human resource system, and their strengths and challenges. It has laid
out the broad features of how the civil service is managed and how it functions (chapter 2). It has analyzed the
affordability of the macro wage bill. As an emerging policy issue, stronger tools and systems are needed to guide
and monitor affordability. In this context, the World Bank team has developed a customized wage bill modeling
tool with its counterparts in the Government (chapter 3). The report has reviewed in detail the Government of
Myanmar’s current civil-service pay and compensation structure, and provided a comprehensive assessment of
the total compensation packages, including both monetary and non-monetary components, for civil servants
across grades (chapter 4). It has analyzed—as far as available data allowed—the competiveness, transparency,
and fairness of civil service pay (chapter 5), and laid out the methodologies for analyzing these. The human
resource management functions were reviewed, based on existing civil service regulations—in essence, the
2008 Constitution, the “Public Service Personnel Act, and Civil Service Rules and Regulations 2014—against
the actual practices (chapter 6). Finally, it undertook a focused look into education, one of the most important
sectors in terms of public sector employment and service delivery (chapter 7).

309.	 Based on the diagnostic assessment in each chapter, detailed policy and reform options for the
Government of Myanmar were recommended. The options tailor good practice in civil service management
to the Myanmar context and the country‘s current problems and capacity constraints. Turning to a forward-
looking perspective, table 24 summarizes these practical policy and reform options that the Government of
Myanmar could take on, including a suggestion for the responsible agencies to lead policy development and
implementation of these reform options (see “Key agencies” in table 20).


Table 24:     Sequencing reform options for pay, compensation, and human resource reform

 Reform options                                                      Timeline               Key agencies
 Managing affordability of the wage bill
 Consider using the wage-bill forecasting model in MTFF           Next fiscal year    MOPF
 estimates for wage expenditures.
 Consider collecting individual employee payroll data using       Within 6            Piloted in member
 the proposed template.                                           months              ministries of inter-
                                                                                      ministerial committee
 Consider developing a centralized electronic payroll with        2-3 years           Union Government
 possible linkages to IFMIS and HRMIS.                                                (lead), with all agencies


                                                                                                                  133
      Reform options                                                       Timeline              Key agencies
      Ensure competiveness, transparency, and fairness in compensation
      Competiveness: conduct and analyze labor force and living         Within 1 year      MOPF, MOLIP
      conditions surveys for nuanced insights into the adequacy
      and competitiveness of civil service compensation, and to
      monitor developments over time.
      Transparency and fairness: the rationale for in-kind allowances                      Office of the President
      could be reviewed to establish clarity for objectives and                            and Union Government
      parameters.                                                                          Office
      The Government of Myanmar could begin systematically              Next fiscal year   MOPF and UCSB
      monitoring its ability to recruit and retain the skills that it
      needs, and deploy personnel where it needs them.
      The Government of Myanmar could review and update                 Next fiscal year   Office of the President,
      rates for the operational expenses that enable staff to do                           Union Government
      their jobs.                                                                          Office, MOPF
      Managing human resources for better performance
      Strengthening monitoring of human resource management:            1-2 years          MOPF, UCSB
      conduct regular monitoring to assess the size of human
      resource problems and measure progress (e.g., loss
      of certain skills sets, turnover rates, and performance
      appraisals).
      Establishing a human resource management unit in                  1-2 years          Office of the President,
      each ministry. Functions should include human resource                               UCSB, MOPF
      planning, development, recruitment and selection, training
      and development, and management—with particular focus
      on deployment and retention in underserved areas.
      Human resource and work force planning: the wage bill                                Office of the President,
      forecasting model can be used to strengthen human                                    Union Government
      resource planning and give flexibility to the two-thirds                             Office, all agencies
      policy by providing an accurate projection of the budgetary
      impact.
      Consider using job analysis to inform human-resource                                 Office of the President,
      management functions, such as recruitment and                                        Union Government
      performance appraisals. (This would also serve a possible                            Office and all agencies
      pay and grading reform suggested above.)
      Make the policy on deployment more explicit and                                      Relevant ministries
      transparent.
      Strengthen retention in poor and remote areas through a                              Relevant ministries
      bundle of different incentives based on evidence.
      Strengthen the format for, implementation of, and                                    UCSB and relevant
      monitoring of performance appraisals.                                                ministries




134
 Reform options                                                              Timeline                 Key agencies
 Managing human resources for better education outcomes
 In human resource planning, forecasting teacher supply                  1 year                DERPT, DBE, DTET,
 and demand is critical. This can be done through a teacher-                                   SEOs, REOs, TEOs
 customized version of the wage-bill forecasting tool.
 Pay and workforce planning: conduct an analysis to strike               Next budget           DBE
 a balance on higher pay versus more staff, across-the-                  year
 board pay increases versus targeted increases, and wage
 expenditures versus other expenditures.
 Recruitment and selection: manage the rapid expansion                   Begin within          DHE, DBE
 of teacher numbers and proper hiring of both Education                  1 year (next
 College candidates and daily wage teachers.                             cycle)
 To improve deployment, the Government of Myanmar                        1 year                DHE, DBE
 should make stronger use of the data on teacher supply
 and demand to inform the design of a responsive teacher-
 deployment system.
 Restructure the progression and promotion system to have                1-2 years             DHE, DBE
 tracks within levels and better incentives for teachers to
 specialize in a specific school level. (This policy is already a
 part of the Government’s agenda.)
 To strengthen learning and development of the teacher                   1 year                DHE, DBE
 workforce, the competency standards will be a core policy
 that will link to all aspects of teacher development as well
 as performance management and appraisal.
 To strengthen performance management and performance                    2 years               DHE, DBE, DHREP
 appraisals, consider strongly focusing on capacity
 development of the assistant township education officers
 and head teachers, as well as considering the time they need
 to allocate to fulfill their tasks.

Notes: Abbreviations used are MOPF = Ministry of Finance and Planning; MOLIP = Ministry of Labor, Immigration, and Population;
UCSB = Union Civil Service Board; GAD = General Administration Department (in MOPF); MOE = Ministry of Education; MOH =
Ministry of Health; DERPT = Department of Education Research, Planning, and Training (in Ministry of Education); SEOs = state
education offices; REOs = regional education offices; TEOs = township education offices; DBE = Department of Basic Education
(in Ministry of Education); DHE = Department of Higher Education (in Ministry of Education); DTET = Department of Teacher
Education and Training (in Ministry of Education).




                                                                                                                                 135
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      ANNEXES
      Annex 1 	 Glossary
      Table A1:       Glossary

                Term                                    Explanation in English                                   Source

       Accountability            Accountability refers to the obligation on the part of public officials to   UNPAN
                                 report on the use of public resources and answerability for failing to
                                 meet stated performance objectives.
       Allowances                Current rewards other than base pay. These can be provided as part           World Bank1
                                 of the employment contract (e.g., transportation, housing, meals,
                                 telephone, travel, cost-of-living), provided on a non-contractual basis,
                                 or provided as intangible rewards (e.g., trips abroad or training).
       Armed forces              All enlisted personnel (including conscripts) and professional military.     World Bank1
       (employment category)     Administrative employees of the Ministry of Defense are generally
                                 excluded from this category and accounted for as civilian central
                                 government employees.
       Audit                     An independent, objective assurance activity designed to add value           OECD3
                                 and improve an organization's operations. It helps an organization
                                 accomplish its objectives by bringing a systematic, disciplined approach
                                 to assess and improve the effectiveness of risk management, control,
                                 and governance processes.
       Base pay or base wage     The salary or wages that every civil servant receives regularly (usually     World Bank1
                                 fortnightly or monthly) from the government by virtue of being on
                                 the payroll. Base pay is usually linked to an employee's position and
                                 is uniform across similar positions. The base wage is often cited to
                                 compare wages in the public and private sectors. It is, however, only one
                                 component of civil servants' total rewards.
       Benchmarking              The establishment of quantitative standards for comparing one                OECD2
                                 organization with another as a means of improving performance.
                                 Process benchmarking is the study and comparisons of the processes
                                 and activities that turn inputs into outputs. Results benchmarking
                                 compares actual performance of organization using performance
                                 indicators or measures.
       Budget                    A comprehensive statement of government financial plans including            OECD5
                                 expenditures, revenues, deficit or surplus, and debt. The budget is the
                                 government’s main economic policy document, indicating how the
                                 government plans to use public financial resources to meet policy goals.
       Budget classification     A budget classification system constitutes a normative framework for         IMF1
                                 the day-to-day administration and monitoring of budget execution,
                                 policy formulation, and analysis, to ensure accountability, provide
                                 information to parliament and the public, and create the basis for budget
                                 authorization (or the level of parliamentary authorization).
       Budget cycle              All the major events or stages in making decisions about the budget, and     OECD2
                                 implementing and assessing those decisions. It usually has four stages:
                                 formulation, approval, execution, and audit.


140
           Term                               Explanation in English                                   Source

Capacity               Capacity building refers to augmenting staff ability and increasing staff    UNPAN
                       or physical resources in situations where there is none—for example,
                       post-conflict reconstruction of public administration (UNDP, 2002).
                       Capacity is used —to evaluate and address the crucial questions related
                       to policy choices and modes of implementation among development
                       options, based on an understanding of environment, potentials,
                       limits, and needs perceived by the people of the country concerned.
                       It encompasses the country’s human, scientific, technological,
                       organizational, institutional, and resource capabilities.
Central agencies       These organizations are part of the executive branch to co-ordinate          World Bank1
                       the activities of, and provide guidance to, the operating ministries
                       and agencies. Terminology varies widely from country to country, but
                       central agencies generally include the Ministry of Finance; the cabinet
                       office/chancellery or the ministry assisting the prime minister or the
                       council of ministers in the development and co-ordination of policy;
                       the ministry or agency responsible for developing and coordinating
                       policies in relation to human resource management within the public
                       sector; the Ministry of Foreign Affairs, in certain areas of work such as
                       European integration policy
Civil Service          Body of government employees entrusted with the administration of            UNDP
                       the country and mandated to carry out the policy of the government
                       of the day.
Civil service (as      Distinctive employment status for some public servants, generally            World Bank1
employment category)   defined by law and usually with four characteristics:
                       1) Civil servants are "appointed" by decision of an authorized public
                       institution in accordance with the civil service law. A decision by a
                       representative of the State to "appoint" a civil servant must conform to
                       established rules that structure the hiring process.
                       2) Once appointed, there are many constraints on dismissal. This
                       is because civil servants are not simply employees of the state; they
                       also have a constitutional role. The intent of civil service legislation
                       is to balance the requirement these employees be responsive to the
                       government of the day, with the parallel requirement that they respect
                       and maintain state institutions over time. In other words, additional job
                       security is provided in order to prevent short-term political pressures
                       from leading to inappropriate personnel changes.
                       3) There are more constraints on the actions of civil servants than on
                       other groups. Again, this is because of the strategic and constitutional
                       role of civil servants.
                       4) Civil servants are part of the employment categories of civilian
                       central government or subnational government. These two categories
                       generally exceed the number of staff defined as civil servants.
                       There are other employment arrangements in the public sector that
                       provide something akin to civil servant status. For example, the judiciary
                       can often be employed under arrangements that provide constitutionally-
                       based constraints on dismissal. Yet, members of the judiciary are rarely
                       known as civil servants.




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               Term                                    Explanation in English                                   Source

      Compensation              Non-salary compensation includes expenditure by employers or public          OECD6
                                authorities on retirement programs, health care or health insurance,
                                unemployment compensation, disability insurance, other forms of social
                                insurance, non-cash supplements (e.g., free or subsidized housing),
                                maternity benefits, free or subsidized child care, and such other fringe
                                benefits as each country may provide. This expenditure does not include
                                contributions made by the employees themselves, or deducted from
                                their gross salaries.
      Decentralization          The transfer of responsibility to democratically independent lower           OECD1
                                levels of government, thereby giving them more managerial discretion,
                                but not necessarily more financial independence.
      Deconcentration           The transfer of responsibility from central ministries to field offices or   OECD1
                                more autonomous agencies, thereby becoming closer to citizens while
                                remaining part of central government. Frequently in unitary states.
      Education (employment     Primary and secondary public school teachers. Administrative                 World Bank1
      category)                 employees of the Ministry of Education and local school administrators
                                are generally excluded from this category and accounted for as civilian
                                central government employees.
      Effectiveness             The extent to which policy objectives were achieved, or are expected to      OECD3
                                be achieved, taking into account their relative importance.
      Efficiency                A measure of how economically resources/inputs (funds, expertise,            OECD3
                                time, etc.) are converted to results.
      Entitlement               Any spending program where expenditure is open-ended (usually                IMF1
                                transfer/grant payments) and where recipients must be paid or given
                                transfers/grants, if they meet certain criteria. Some common examples
                                are found in social security programs, unemployment programs, and
                                poverty programs. (Program examples in the United States include
                                Social Security, Medicare, Medicaid, and food stamps.)
      Establishment control     The formal process for matching information on funded posts in an            Review Team
                                organization to the details of the staff currently employed in those
                                posts.
      Fiscal policy             Government actions with respect to aggregate levels of revenue and           OECD2
                                spending. Fiscal policy is implemented through the budget and is the
                                primary means by which the government can influence the economy.
                                Permanent constraints on fiscal policy, typically defined in terms of
                                an indicator(s) of overall fiscal performance, such as the deficit/GDP
                                (gross domestic product) ratio and the debt/GDP ratio.
      Fiscal weight of public   The public sector wage bill as a percentage of GDP.                          World Bank1
      employment




142
        Term                                     Explanation in English                                     Source

General government       Employment in "all government departments, offices, organizations,              World Bank1
(employment category)    and other bodies that are agencies or instruments of the central or local
                         authorities, whether accounted for, or financed in, ordinary or extraordinary
                         budgets or extra-budgetary funds. They are not solely engaged in
                         administration but also in defense and public order, in the promotion of
                         economic growth and in the provision of education, health, cultural, and
                         social services" (International Standard of Industrial Classification of All
                         Economic Activities [ISIC], Series M, no. 4, rev. 3- 1990).
                         There are six mutually exclusive categories of employment within
                         general government:
                         Employment in "all government departments, offices, organizations,
                         and other bodies that are agencies or instruments of the central or
                         local authorities, whether accounted for, or financed in, ordinary or
                         extraordinary budgets or extra-budgetary funds. They are not solely
                         engaged in administration but also in defense and public order, in the
                         promotion of economic growth and in the provision of education,
                         health, cultural, and social services" (International Standard of Industrial
                         Classification of All Economic Activities [ISIC], Series M, no. 4, rev. 3-
                         1990).
                         1) Armed forces
                         2) Civilian central government (excluding education, health, and police)
                         3) Subnational government (excluding education, health, and police)
                         4) Health employees
                         5) Education employees
                         6) Police
Good practice            A good practice is a process or a methodology that represents the most          CHRODIS
                         effective way of achieving a specific objective. A good practice is one
                         that has been proven to work well and produce good results, and is
                         therefore recommended as a model. It is a successful experience, which
                         has been tested and validated in the broad sense, and has been repeated
                         and deserves to be shared so that a greater number of people can adopt
                         it.
Governance               Governance is “the exercise of economic, political, and administrative          UNDP
                         authority to manage a country’s affairs at all levels. It comprises the
                         mechanisms, processes, and institutions through which citizens and
                         groups articulate their interests, exercise their legal rights, meet their
                         obligations, and mediate their differences” (UNDP, 1997).
Government               In most parliamentary and semi-presidential systems, this term                  World Bank1
                         refers to the entire executive branch of the state or to the members
                         of governments (usually termed "ministers," but occasionally called
                         "secretaries") selected by the legislature or appointed by the head of
                         government to run the executive branch. In the United States, the term
                         "government" is used in a variety of ways. It can refer to the entire
                         executive branch of the federal government, to the federal government
                         generally, and sometimes to federal, state, and local governments
                         combined.
Gross domestic product   The total value of final goods and services produced in a country during        OECD2
(GDP)                    a single year. Economic growth is measured by the change in GDP from
                         year to year.



                                                                                                                       143
                Term                                   Explanation in English                                     Source

      Health employees         Medical and paramedical staff (doctors, nurses, and midwives) and               World Bank1
      (employment category)    laboratory technicians employed in government hospitals and other
                               government health institutions at all levels of government. Administrative
                               employees working in the health sector are generally excluded from this
                               category and accounted for as civilian central government employees.
      Indicator                Quantitative or qualitative factor or variable that provides a simple and       OECD3
                               reliable means to measure achievement, to reflect the changes connected
                               to a policy intervention, or to help assess the performance of an agency.
      Inputs                   Inputs are the resources of a reporting entity used to produce outputs in       OECD3
                               delivering its objectives. These may take the form of financial, human,
                               and technical resource inputs.
      Labor force              Total labor force comprises people who meet the International Labor             World Bank1
                               Organization (ILO) definition of the economically active population:
                               all people who supply labor for the production of goods and services
                               during a specified period. It includes both employed and unemployed
                               people. While national practices vary in the treatment of such groups
                               as the armed forces and seasonal or part-time workers, in general, the
                               labor force includes the armed forces, unemployed persons, and first-
                               time job-seekers, but excludes homemakers and other unpaid caregivers
                               and workers in the informal sector.
      Medium-term fiscal (or   A multi-year aggregate projection of revenue, expenditure, and                  OECD2
      financial) framework     financing. MTFF is a transparent planning and budget formulation
      (MTFF)                   process within which the central government establishes credible
                               contracts for allocating public resources to their strategic priorities while
                               ensuring overall fiscal discipline.
      Monitoring               A continuing function that uses systematic collection of data on                OECD3
                               specified indicators to provide management and the main stakeholders
                               of an ongoing policy intervention with indications of the extent of
                               progress and achievement of objectives and progress in the use of
                               allocated funds.
      Outcomes                 Outcomes describe the impact of a government program on social                  OECD3
                               or economic indicators. Examples of outcomes include the change in
                               student test scores following an increase in hours taught, the change in
                               the incidence of a disease following an immunization program, or the
                               change in income inequality following the introduction of a new welfare
                               payment. Outcomes are a broader performance metric than outputs and
                               are harder to measure.
                               Outcomes are the effects on society of outputs from governmental
                               entities. Outcomes—whether intended or unintended—are not usually
                               completely controllable by governments. The degree of control
                               depends on the influence of extraneous factors on the goal in question,
                               the effectiveness of implementation, and the quality of the policies for
                               reaching the goal.
      Outputs                  Outputs are defined as goods and services provided by government                OECD2
                               agencies. Some examples include teaching hours delivered,
                               immunizations provided, or welfare benefits paid. Outputs tend to be
                               easier to measure than outcomes.




144
          Term                                   Explanation in English                                    Source

Pension                  Payment made to a pension-fund member (or dependents) after                    OECD1
                         retirement.
Performance indicator    Performance can be monitored and assessed through measures or                  OECD2
                         indicators—particular value(s) or characteristic(s) used to measure output
                         or outcome. Measures correspond to direct records of inputs, outputs,
                         and outcomes. (For example, the number of police patrols carried out
                         in a given period is an output measure.) Indicators are used as a proxy
                         when direct measures are difficult or costly to obtain (For example,
                         the “street” price of illegal drugs is an indicator of the outcome of
                         an anti-drug program.) In practice, however, the terms “measures” and
                         “indicators” are often used interchangeably. “Performance indicators”
                         may be used to evaluate inputs, processes, outputs, and outcomes.
Performance              Generally understood to be the management of the performance of                World Bank1
management               government organizations as a whole, their chief executives, and their
                         staffs.
Performance targets      Specific and measureable outputs or outcomes that are set ex-ante with         OECD4
                         the goal of being achieved by a government policies, programs, and/
                         or organizations within a pre-specified amount of time. Performance,
                         as measured against performance targets, compares the initial output/
                         outcome goals set with those actually achieved (e.g., 200 trainees to
                         be trained in 12 months time). Progress can be monitored against the
                         defined targets.
Police (employment       All personnel—whether military, paramilitary or civilian—that exercise         World Bank1
category)                police functions, including corps like the gendarmerie in France and
                         carabinieri in Italy.
Policy                   A decision determined by the government to address 1) socio-economic           OECD4
                         challenges in a country (or, in the case of foreign policy, in the country’s
                         relations with other countries) and 2) usually also decisions on how these
                         challenges will be addressed. Policies are typically expressed in laws/
                         regulations, official policy statements or guidelines, and institutions,
                         which then result in programs and specific initiatives financed and/or
                         conducted by government organizations to address these challenges.
                         Policy can also be a set of activities, which may differ in type and which
                         may have different beneficiaries, but that are directed towards common
                         general objectives or goals. In contrast to a program, a policy does not
                         have necessarily a delimited budget.
Position-based systems   Position-based career systems in the civil service place an emphasis on        World Bank1
                         selecting the best-suited candidate for each position to be filled, whether
                         by external recruitment, internal promotion, or mobility. Position-based
                         systems are characterized by relatively open access to positions at all
                         levels, where lateral entry is relatively common. This is in contrast
                         to closed career systems in the civil service, where the recruitment
                         arrangements ensure that initial entry to the civil service is usually based
                         on a relevant university degree or academic credentials. In those systems,
                         appointments tend to be made via promotion within the civil service.
                         Closed career systems are sometimes referred to as "mandarin" systems.




                                                                                                                      145
                 Term                                 Explanation in English                                    Source

      Public administration    According to UNDP, public administration has two closely related              UNDP
                               meanings:
                               1) The aggregate machinery (policies, rules, procedures, systems,
                               organizational structures, personnel, and so forth) funded by the state
                               budget and in charge of the management and direction of the affairs of
                               the executive government, and its interaction with other stakeholders in
                               the state, society, and external environment
                               2) The management and implementation of the whole set of government
                               activities dealing with the implementation of laws, regulations, and
                               decisions of the government and the management related to the
                               provision of public services
      Public financial         Public financial management is the system by which financial resources        CIPFA
      management               are planned, directed, and controlled to enable and influence the efficient
                               and effective delivery of public service goals.
      Public servants          A wider group of employees than civil servants. For example, teachers         World Bank1
                               and doctors in publicly owned schools and health facilities may or
                               may not legally be civil servants, but they are always public servants if
                               employed by budget-funded organizations.
      Public service           Service provided by government to citizens, such as health care,              World Bank2
                               education, waste management, infrastructure, etc.
      Remuneration             Remuneration includes any payment made under a contract for services.         HRINZ
      Remuneration-in-kind     Remuneration-in-kind occurs when an employee accepts payment in the           OECD1
                               form of goods and services instead of money.
      Service delivery         Provide public sector services that comply with government legislation,       NZQA
                               principles, and priorities.
      Stakeholders             Agencies, organizations, groups, or individuals who have a direct or          OECD3
                               indirect interest in the policy intervention or its evaluation. Stakeholder
                               groups may include:
                               • beneficiaries and non-beneficiaries from the target group, decision
                               makers, and activity staff;
                               • those with an interest in the activity (e.g., advocacy groups and central
                               agencies); and
                               • those who are adversely or unintentionally affected by the intervention.
      State-owned enterprise   Employees of enterprises that are majority-owned by government                World Bank1
      (SOE) employees
      Strategy                 A comprehensive set of goals and plans for their achievement.                 DFAT
                               The approach to be used to supply appropriately and consistently with         Australia
                               the entity's corporate goals. It is based on the requirements from needs
                               analysis and review of present provision.




146
           Term                                         Explanation in English                                      Source

  Subnational government        All general government employees who are not members of the armed               World Bank1
  (excluding education,         forces or directly funded by the central government. This includes
  health, and police)           municipalities, as well as regional, provincial, or state (in federal
  (employment category)         systems) employment. The distinction between central and subnational
                                government employment categories is budgetary, not geographic.
                                If central government agencies are geographically dispersed, but
                                without changing their ultimate sources of finance, then the staff in
                                those agencies are included in the employment category civilian central
                                government.
  Total civilian                All general government employees who are not members of the armed               World Bank1
  central government            forces or directly funded by subnational government. The distinction
  (employment category)         between central and subnational government employment categories is
                                budgetary, not geographic.
  Total compensation            Personal emoluments plus in-kind benefits and allowances, such as               World Bank1
                                health insurance, transportation, meals, or travel.
  Total public                  State-owned enterprise (SOE) employees plus general government                  World Bank1
  employment
  Total rewards                 Total compensation plus non-contractual/intangible rewards and                  World Bank1
                                allowances, such as job security, prestige, social privileges, and future
                                expectations, such as pension or anticipated housing or land grants.
  Transparency                  Transparency refers to an environment in which the objectives of policy,        IMF2
                                its legal, institutional, and economic framework, policy decisions and
                                their rationale, data and information related to monetary and financial
                                policies, and the terms of agencies’ accountability, are provided to the
                                public in a comprehensible, accessible, and timely manner.

Sources:
CHRODIS—Addressing Chronic Diseases and Healthy Aging across the Life Cycle, Glossary http://chrodis.eu/resources/glossary/
DFAT Australia—Department of Foreign Affairs and Trade Australia: “Annual Report 1999-2000,” “Glossary of Terms”
DFID—Department for International Development: “Glossary 2002”
HRINZ—Human Resource Institute of New Zealand (http://www.hrinz.org.nz/,
http://www.nzqa.govt.nz/framework/explore/domain.do?frameworkId=76113)
IMF1—B. H. Potter and J. Diamond, 1999, “Guidelines for Public Expenditure Management” (International Monetary Fund)
IMF2—Supporting document to the “Code of Good Practices on Transparency in Monetary and Financial Policies, Part 1: Introduction,”
2004.
NZQA—New Zealand Qualification Authority
OECD1—“Glossary of Statistical Terms”
OECD2—“Public Expenditure Management Handbook for Transition Countries”
OECD3—“Glossary of Key Terms in Evaluation and Results-based Management”
OECD4—“Glossary of Key Terms for Completing the 2012 OECD Budgeting Practices and Procedures Survey”
OECD5—“Budget Practices and Procedures Database, Phase II: Final Glossary,” 19 December 2006
OECD6—“Education at a Glance,) Paris, 2002
UNDP—“UNDP Public Administration Reform Glossary”
UNPAN—United Nations Public Administration Network, http://www.unpan.org
World Bank1—“General Public Administration and Civil Service Terms”
World Bank2—“Public Expenditure Review: Myanmar,” 2015




                                                                                                                                     147
      Annex 2 	 Myanmar’s Compensation-Related Entitlements
      This annex describes components of Myanmar’s civil service compensation system, based on review of official
      regulations, discussions with government officials, and other sources as cited.

      Monetary compensation
      1.	 Base salary: Base salary rates for the 13 grades are specified in notifications issued by the Ministry of Finance.
          Civil servants except Director General and Managing Director receive a pay increment every two years.
      2.	 Regional allowance for posts in hardship areas:142 Approximately 108 of Myanmar’s 335 townships are classified
          as hardship areas.
      3.	 Additional allowance for civil servants: This was cancelled at the start of FY 2015/2016. An allowance of
          MMK 30,000/month was established in Ministry of Finance Notification No. 100/3012, 14 March 2012,
          Nay Pyi Taw, 7th Waning Day of Tabaung, 1373 ME.
      4.	 Tax exemption for family members residing with taxpayers: Individuals receive a MMK 1,000,000 per year tax
          exemption for the spouse at home and each parent residing with the civil servant. For each unmarried
          child under age 18 (or over 18 if in full-time studies) residing with the civil servant, the individual receives
          a MMK 500,000 tax exemption per year.143
      5.	 “Awards” and “remuneration”: These are given to individuals for additional or special work beyond regular
          duties, or for examination results.144 These two payments are funded from the union budget or other
          sources, respectively. While this is stipulated in the Civil Service Rules 2014, it is not clear whether any
          such payments are made in practice.
      6.	 Shift allowance: This is seen only in the health sector.

      In-kind allowances and benefits
      For each of the allowances below (except daily allowance and travel allowance), the information from a sample
      of departments in six ministries and UCSB is provided in other annexes.

      1.	 Vehicle: decided by each department; practices vary
      2.	 Gasoline allowance: decided by each department; practices vary
      3.	 Telephone allowance: decided by each department; practices vary
      4.	 Housing benefit: varies across bodies, geographic locations and grade
      5.	 Free transportation to work: free transportation provided only in some cases, depending on the department
          and location (in Nay Pyi Taw, departments provide free shuttle buses to take staff to and from work.)
      6.	 Daily allowance and travel allowance for duty-related travel: when this simply pays for work-related
          expenses, it is not part of a worker’s compensation package. However, depending on actual practice and
          rates, some portion of per diem may in certain cases become de facto compensation. Daily allowance rates
          (per diem) in Myanmar are described as modest, possibly not covering actual reasonable expenses.
      7.	 “Fixed outfit allowance and impress money” (as translated from original Myanmar text).

      142  Civil Service Rules and Regulations 2014, chap. 12.
      143  These exemptions are established in the Ministry of Finance, Internal Revenue Department’s “Procedures for Calculating Income
      Tax Under the Salary for 2015-2016 Fiscal Year,” distributed by the Minister of Finance, Register No. BaKha-2/11 (2893/2015), date 10
      April 2015, in “Dissemination of Income Calculation Procedures from Income Title for 2015-2016 Fiscal Year.”
      144  Civil Service Rules and Regulations 2014, chap. 6.


148
Leave benefits           145




Civil servants are entitled to be absent from work under the following circumstances.

1.	 Annual leave (“earned leave”): staff members earn one day of annual leave for every 11 days of work,
    maximum up to two months.
2.	 Long vacation leave: applies to teachers during school holidays more than 15 consecutive holidays in a
    calendar year.
3.	 Casual leave: for sudden illness or personal needs, up to 10 days per calendar year.
4.	 Special casual leave for rabies treatment: up to one month with medical approval
5.	 For donating blood: on the day of donation plus the day immediately after
6.	 Quarantine leave: if household members have contagious illness, 21-30 days with medical approval
7.	 Medical leave: at half pay, with medical approval; limited to 12-18 months over a career
8.	 Maternity leave: six months (plus additional six weeks for twins) with full pay
9.	 Paternity leave: two weeks with full pay
10.	 Preparation leave for retirement: up to four months
11.	 Special disability leave for workplace injuries: with medical approval, up to 24 months (at first the person
     receives full pay, but this is reduced over time.)
12.	 Hospital leave: at full or half pay for work-related illnesses for staff of certain bodies, not to exceed three
     months per three-year period
13.	 Sick leave for shipboard staff: at full pay with medical approval, not to exceed three months per three-year
     period
14.	 Study leave: at full pay
15.	 Leave without pay
16.	 Job transfer leave: five days, up to 30 days


Pension benefits               146




1.	 Superannuation pension scheme: Gratuity is paid to retirees with less than 10 years’ service (who are
    not eligible for a monthly pension), as well as those with 10 or more years of service who will receive a
    monthly pension. Formulas are in the Pensions Department’s March 2013 unpublished note “Pension
    Rules and Regulation: Conditions of Qualification.” All pensions are a defined benefit, non-contributory,
    and funded from the Government of Myanmar’s budget.
2.	 Early retirement or “relaxation” pensions: Regular pension is payable at age 60, with 1- years vesting;
    replacement rate is 50% of final basic salary for those with 35 years of service. Early retirement is at age
    55, with 30 years vesting; “relaxation” pension is at age 55 with 20 years, or age 50 with 25 years.
3.	 Disability pension: With at least 10 years’ service and if medically certified as unable to return to work.
    (See Civil Service Rules and Regulations 2014, paragraphs 95 and 233.)
4.	 Family pension (survivors benefit)
5.	 “Compensation pension” at abolition of post or closure of state economic enterprise: This is labeled as
    a pension in Myanmar. However, it is in fact not a pension, but rather a termination benefit.
145  As stated in the Civil Service Rules and Regulations 2014.
146  As described in Civil Service Rules and Regulations 2014, and World Bank, 2015, “Strengthening Social Security Provision in Myanmar.”


                                                                                                                                         149
      Annex 3 	 Civil Service-Related Regulations Reviewed
      The following are among the civil service-related regulations reviewed for this study.

      2016
      1.	 Ministry of Finance, Notification No. 12/2016, 8th Waning Day of Tapotwe, 1377 ME, 16 February 2016.
          Subject: Stipulation of higher hardship regional allowances for civil servants who are working in remote
          areas.

      2015
      2.	 Ministry of Finance, Office of the Minister, Notification No. 388/2015, Nay Pyi Taw, the 8th Waning Day
          of Tapotwe 1376 ME, (11 February 2015). Subject: Increasing the basic salaries of the cook, house helper,
          gardener, and driver appointed for the persons who were serving for the State, taking huge responsibilities
          during the rule of the former State Peace and Development Council.
      3.	 Ministry of Finance, Office of the Minister, Notification No. 389/2015, Nay Pyi Taw, the 8th Waning Day
          of Tapotwe 1376 ME, (11 February 2015). Subject: Increasing the basic salary of the personal assistant,
          store keeper, waiter, chief cook, launderer, cook, house helper, gardener, and driver, who are appointed
          according to the Law Relating to the Emoluments, Allowances, and Insignia of the Union Level Persons,
          Region, or State Level Persons, Chairperson, and Executive Committee Members of the Self-Administered
          Division or of the Self-Administered Zone, and Chairperson and Council Members of the Nay Pyi Taw
          Council.
      4.	 Union Government, Announcement Order No. 23/2015, 19 March 2015, Amendment of the Job Titles
          of Government Officers and Employees.
      5.	 Ministry of Finance, Office of the Minister, Register No. BaKha-2/11 (2893/2015) 10 April 2015. Subject:
          Dissemination of income calculation procedure from income title for 2015-2016 Financial Year.
      6.	 Ministry of Finance, Office of the Ministry, Notification No. 1058/2015, Nay Pyi Taw, the 7th Waning
          Day of Tagu 1376 ME (10 April 2015). Subject: Temporary amendment to the Hardship Duty Locations
          Pay to the civil service personnel who are serving in remote areas.
      7.	 Ministry of Finance, Office of the Ministry, Notification No. 1059/2015, Nay Pyi Taw, the 7th Waning
          Day of Tagu 1376 ME, 2015 April 10. Subject: Increasing the pension for retired civil service personnel.
      8.	 Ministry of Finance, Office of the Ministry, Register No. BaKha- 1/310 (1617/2015), 10 April 2015.
          Subject: Defining daily-basis wage for workers in governmental departments and agencies.
      9.	 Ministry of Finance, Office of the Minister, Notification No. 1298/2015, Nay Pyi Taw, the 2nd Waxing
          Day of Nayone 1377 ME, 19 May 2015. Subject: Defining wage for daily-basis workers who are serving
          in townships in which hardship duty locations pay is entitled.
      10.	 Ministry of Finance, Office of the Ministry, Notification No. 1300/2015, Nay Pyi Taw, the 2nd Waxing
           Day of Nayone 1377 ME, 19 May 2015. Subject: Increasing the basic salary of the personal assistant, store
           keeper, waiter, chief cook, launderer, cook, house helper, gardener and driver, who are appointed according
           to The Law Relating to the Emoluments, Allowances, and Insignia of the Union Level Persons, Region, or
           State Level Persons, Chairperson, and Executive Committee Members of the Self-Administered Division
           or of the Self-Administered Zone, and Chairperson and Council Members of the Nay Pyi Taw Council.
      11.	 Ministry of Finance, Office of the Minister, Notification No. 1513/2015, Nay Pyi Taw, the 1st Waxing
           Day of First Warso 1377 ME, 17 June 2015. Subject: Increasing monthly honorarium to scholars.




150
12.	 Ministry of Finance, Office of the Ministry, Notification No. 1514/2015, Nay Pyi Taw, the 1st Waxing Day
     of Warso 1377 ME, 17 June 2015. Subject: Increasing monthly allowance for experts
13.	 Ministry of Finance, Internal Revenue Department, Procedures of Calculating Income Tax under the
     Salary for 2015-2016 Financial Year (undated).
14.	 Ministry of Finance, Office of the Minister, Notification No. 3006/2015, Nay Pyi Taw, 14th waning day
     of Tazaungmone 1377 ME, 10 December 2015. Subject: Stipulation of wage for daily wage earners in the
     Government departments and organizations


2014
15.	 Union Civil Service Board, Republic of the Union of Myanmar, “Civil Service Rules,” 26March 2014.
16.	 Ministry of Finance, Office of the Minister, Notification No. 587/2014, Nay Pyi Taw, the 5th Waxing Day
     of Tagu 1375 ME, 14 April 2014. Subject: Increasing the rate of salary, pension, and wages of the civil
     service personnel.
17.	 Ministry of Finance, Office of the Minister, Notification No. 588/2014, Nay Pyi Taw, the 5th Waxing Day
     of Tagu 1375 ME, 4 April 2014. Subject: Increasing monthly allowance for experts.
18.	 Ministry of Finance, Office of the Minister, Notification No. 589/2014, Nay Pyi Taw, the 5th Waxing Day
     of Tagu 1375 ME, 4 April 2014. Subject: Increasing honorarium to scholars.


2013
19.	 Public Service Personnel Act, 2013.
20.	 Ministry of Finance, Office of the Minister, Notification No. 544/2013, Nay Pyi Taw, 6th Waning Day of
     Tabaung, 1374 ME, 1 April 2013. Subject: Increasing salary, pension, and wages of civil servants.
21.	 Ministry of Finance, Office of the Minister, Notification No. 545/2013, Nay Pyi Taw, 6th Waning Day of
     Tabaung, 1374 ME, 1 April 2013. Subject: Setting monthly grant for experts.
22.	 Ministry of Finance, Office of the Minister, Notification No. 546/ 2013, 6th Waning Day of Tabaung,
     1374 ME, 1 April 2013. Subject: Increasing honoraria for scholars.
23.	 Ministry of Finance, Office of the Minister, Register No. BaKha – 1/310 (1799/ 2013), 9 April 2013.
     Subject: Permission to increase pension.
24.	 Ministry of Finance, Office of the Minister, Register No. BaKha – 1/310 (4029/2013), 26 July 2013.
     Subject: Increasing honoraria for scholars.


2012
25.	 Ministry of Finance, Office of the Minister, Notification No. 100/2012, Nay Pyi Taw, 7th Waning Day of
     Tabaung, 1373 ME, 14 March 2012. Subject: Allowance of additional grant for civil servant serving for
     the country within the country.
26.	 Ministry of Finance, Office of the Minister, Notification No. 150/2012, Nay Pyi Taw, 6th Waxing Day of
     Kasone 1374 ME, 26 April 2012. Subject: Allowance of additional grant for advisors and experts serving
     for the country from within the country.
27.	 Ministry of Finance, Office of the Minister, Notification No. 208/2012, Nay Pyi Taw, 6th Waning Day of
     Kasone, 1374 ME, 11 May 2012.



                                                                                                              151
      2011
      28.	 Ministry of Finance, Office of the Minister, Notification No. 106/ 2011, Nay Pyi Taw, 14th Waning Day
           of Nayon, 1372 ME, 30 June 2011. Subject: Increasing pension for civil servants.
      29.	 Ministry of Finance, Office of the Minister, Register No. BaKha – 1/310 2059/ 2011, 30 June 2011.
           Subject: Increasing pension for civil servants.


      2010
      30.	 The Law on the Union Civil Service Board (2010),
      31.	 Ministry of Finance, Office of the Minister, Register No. BaKha 1/195 (2010), 28 September 2010.
           Presentation to the Government of the Union of Myanmar. Subject: The amendment of daily travel
           allowance rates mentioned in bylaw.
      32.	 Ministry of Finance, Office of the Minister, Notification No. 216/ 2010, Nay Pyi Taw, 7th Waning Day
           of Tawthalin, 1372 ME, 30 September 2010. [Document untitled, concerns amendment to daily travel
           allowance]


      2008
      33.	 The Constitution of the Republic of the Union of Myanmar, 2008.




152
Annex 4 	 Civil Service Job Titles by Grade

Table A2:        Civil service job titles by grade

Note: The number following a specific job title refers to a grade within that job.

                                                        Gazetted positions

 Base salary 2015-2016
                                                                                Job titles
 (in MMK)
  500,000                           Permanent secretary ~ director general-in-charge ~ director general ~ managing director
                                    ~ director general of the peoples’ police force ~ chief ambassador ~ rector ~ principal ~
                                    deputy air force department head ~ chief pilot ~ pilot-in-command
  380,000/4,000/400,000             Deputy permanent secretary ~ deputy director general ~ director ~ general manager ~ chief
                                    police officer ~ ambassador ~ pilot ~ rector ~ deputy rector ~ professor (medical practice)
                                    ~ principal ~ vice-principal ~ chief engineer ~ head of factory ~ medical superintendent ~
                                    deputy managing director
  340,000/4,000/360,000             Assistant secretary ~ director ~ deputy director ~ general manager ~ deputy general manager
                                    ~ chief department head ~ department head ~ chief police officer ~ chief ambassador ~
                                    chief consulate general ~ chief engineer ~ professor ~ vice-professor ~ principal ~ vice-
                                    principal ~ medical superintendent ~ factory head ~ deputy factory head ~ chief marine
                                    department head ~ chief markers or buoys ~ chief watercraft ~ chief watercraft architect ~
                                    port officer ~ chief editor ~ librarian ~ researcher ~ chief engineer ~ deputy chief engineer
                                    ~ chief accountant
  310,000/4,000/330,000              Deputy director ~ assistant director ~ deputy general manager ~ assistant general manager ~
                                    manager ~ department head ~ ambassador ~ deputy chief police officer ~ vice-professor ~
                                    assistant professor ~ lecturer (PhD) ~ principal ~ vice-principal ~ medical superintendent ~
                                    specialist ~ deputy director general of engineering ~ chief engineer ~ deputy chief engineer ~
                                    factory head ~ deputy factory head ~ assistant factory head ~ deputy marine department chief
                                    ~ watercraft engineer ~ chief watercraft ~ deputy chief watercraft ~ port officer ~ geology
                                    officer ~ geology and physics officer ~ executive editor ~ researcher ~ deputy department
                                    officer ~ material controller ~ deputy chief civil engineer ~ deputy chief accountant
  280,000/4,000/300,000             Assistant director ~ deputy director ~ manager ~ department head ~ subdepartment head
                                    ~ police officer ~ first secretary ~ lecturer ~ registrar ~ principal ~ education officer ~
                                    medical superintendent ~ specialist ~ doctor ~ chief engineer ~ factory head ~ deputy
                                    factory head ~ assistant factory head ~ workshop head ~ deputy pilot ~ assistant marine
                                    department head ~ chief marine engineer ~ watercraft engineer ~ watercraft chief ~
                                    watercraft officer ~ watercraft architect ~ geology officer ~ geology and physics officer ~
                                    geology and chemistry officer ~ executive editor ~ editor ~ museum in-charge ~ librarian ~
                                    chief nurse ~ chief researcher ~ deputy researcher ~ research officer ~ deputy chief editor
  250,000/4,000/270,000             Assistant manager ~ department head ~ subdepartment head ~ collective department head
                                    ~ personal officer ~ deputy police officer ~ vice-secretary ~ third secretary ~ assistant
                                    lecturer ~principal ~ vice-principal ~ registrar ~ assistant registrar ~ training officer ~ vice-
                                    medical superintendent ~ assistant doctor ~ assistant engineer ~ factory head ~ deputy
                                    factory head ~ deputy workshop head ~ subworkshop head ~ assistant pilot ~ marine
                                    officer ~ assistant marine officer ~ watercraft engineer ~ assistant watercraft engineer
                                    ~ watercraft head ~ assistant watercraft head ~ watercraft officer ~ assistant watercraft
                                    architect ~ assistant geology officer ~ assistant geology and physics officer ~ assistant
                                    geology and chemistry officer ~ editor ~ assistant editor ~ chief reporter ~ chief sportsman
                                    ~ assistant librarian ~ research officer ~ assistant research officer ~ chief officer ~ nurse
                                    chief ~ flying officer ~ work officer ~ assistant museum officer ~ collective department
                                    officer1 ~ collective department officer2 ~ office chief ~ diving officer ~ assistant port
                                    officer ~ deputy education officer ~ literature editor

                                                                                                                                        153
                                              Non-gazetted positions

      Base salary 2015-2016
                                                                        Job titles
      (in MMK)
      210,000/2,000/220,000   Inspector
      195,000/2,000/205,000   Chief officer ~ office head ~ supervisor ~ accountant1 ~ auditor1 ~ cashier1 ~ materials
                              controller1 ~ security officer1 ~ storage officer1 ~ machine operator1 ~ electric expert1 ~
                              machine operator1 ~ electronic expert1 ~ collective workshop officer ~ industry manager1
                              ~ industrial expert1 ~ handicraft expert1 ~ welding1 ~ assistant researcher1 ~ laboratory
                              expert 1 ~ chief watercraft1 ~ chief engine room1 ~ steerman1 ~ sailor1 ~ bosun (foreign/
                              coastal) ~ chief engine room (foreign/coastal) ~ chief watercraft communication officer
                              ~ diver1 ~ measurer1 ~ chief station master ~ engine driver1 ~upper male/female flight
                              attendant ~ communications officer1 ~ driver/mechanic1 ~ driver1 ~ petroleum expert1
                              ~assistant geology officer1 ~assistant geology and physics officer1 ~ assistant mineralogy
                              officer1 ~ assistant mines officer1 ~ junior engineer1 ~ drawing1 ~printing1 ~ prediction1 ~
                              carpenter1 ~ mason1 ~ seller1 ~ chef1 ~ waiter1 ~ usher1 ~ baker1 ~ tour guide1 ~ glasses
                              expert1 ~ butcher1 ~ washer1 ~ decorator1 ~ tailor1 ~ room control1 ~ saw sharpener1)~
                              knife sharpener1 ~ wood checker1 ~ wood accountant1 ~ wood carpenter1 ~ wood buyer
                              ~ materials buyer ~ boiler controller1 ~ animal controller1 ~ veterinarian officer ~ land
                              surveyor1 ~ saw dust machine operator1 ~ tractor driver1 ~ expert fisherman1 ~ senior
                              trainer ~ medical officer1 ~ pharmacy expert1 ~ compound medicine1 ~ nurse1 ~ assistant
                              insect officer1 ~ printing expert1 ~ assistant literature officer1 ~ senior reporter/assistant
                              librarian1 ~ photography expert1 ~ broadcast expert1 ~ motion picture expert1 ~ artist1
                              ~ traditional flower arrangement1 ~ assistant museum officer1 ~ social welfare officer1 ~
                              assistant religious officer1 ~ senior investigation officer ~ head of market1 ~ translator1 ~
                              investigator1 ~ budget officer ~ censor officer1 ~ assistant registrar1 ~ deputy police officer
                              ~ distributor1 ~ expert1 ~ assistant geology and chemistry officer1 ~ embassy head ~ video
                              expert1 ~ lead line head ~ senior typist
      180,000/2,000/190,000   Deputy chief officer ~ deputy supervisor ~ collective department head ~ assistant
                              junior clerk ~ subdepartment clerk ~ junior typist ~ accountant2 ~ auditor2 ~ cashier2
                              ~ materials controller2 ~ security officer2 ~ storage head2 ~ machine operator2 ~
                              engine driver2 ~ electronic expert2 ~ electricity expert2 ~ computer censorship officer
                              ~ demonstrator ~ computer officer ~ workshop head ~ industrial manager2 ~ industrial
                              expert2 ~ production expert2 ~ handicraft expert2 ~ welder2 ~ assistant researcher2 ~
                              laboratory expert2 ~ watercraft chief2 ~ engine room chief2 ~ steerman2 ~ sailor2 ~ chief
                              watercraft communication officer ~ junior engine room officer (foreign/coastal) ~ diver2 ~
                              measurer2 ~ station master ~ engine driver2 ~flight attendant ~ communicator2 ~ driver/
                              mechanic2 ~ driver2 ~ assistant geology officer2 ~ assistant geology and physics officer2
                              ~ assistant geology and chemistry officer2 ~ petroleum expert2 ~ assistant mineralogy
                              officer2 ~ assistant mines officer2 ~ junior engineer2 ~ drawing2 ~ printing2 ~ prediction2
                              ~ carpenter2 ~ mason2 ~ seller2 ~ chef2 ~ waiter2 ~ usher2 ~ baker2 ~ tour guide2
                              ~ glasses expert2 ~ butcher2 ~ washer2 ~ decorator2 ~ warden ~ mahout ~ tailor2 ~
                              room control2 ~ saw sharpener2 ~ knife sharpener2 ~ wood checker2 ~ wood accountant2
                              ~ wood2 ~ wood buyer2 ~ materials buyer2 ~ boiler controller2 ~ animal controller2 ~
                              deputy veterinarian officer ~ land surveyor2 ~ saw dust machine operator2 ~ tractor driver2
                              ~ expert fisherman2 ~ livestock breeding officer ~ bee station-in-charge ~ trainer ~ editor
                              ~ assistant education officer ~ high school teacher ~ distributor2 ~ medical officer2 ~
                              pharmacy expert1 ~ expert2 ~ compound medicine2 ~ nurse2 ~ assistant insect officer2
                              ~ printing expert2 ~ assistant literature officer2 ~ junior reporter ~ assistant librarian2 ~
                              photography expert2 ~ broadcast expert2 ~ motion picture expert2 ~ artist2 ~ traditional
                              flower arrangement2 ~ assistant museum officer2 ~ social welfare officer2 ~ immigration
                              officer ~ assistant religious officer2 ~ investigation officer ~ head of market2 ~ translator2
                              ~ chief jailor ~ censor officer2 ~ assistant budget officer ~ assistant registrar2 ~ police
                              warrant officer ~ demonstrator ~ surveillance officer ~ tax officer ~ embassy clerk ~ video
                              expert2 ~ medical public relations officer


154
                                        Non-gazetted positions

Base salary 2015-2016
                                                                  Job titles
(in MMK)
165,000/2,000/175,000   Assistant chief officer ~ assistant supervisor ~ senior clerk ~ senior typist ~ accountant3
                        ~ auditor3 ~ cashier3 ~ materials controller3 ~ security officer3 ~ storage head3 ~
                        assistant fire department head ~ machine operator3 ~ engine driver3 ~ electronic expert3
                        ~ electricity expert3 ~ assistant computer censorship officer ~ assistant demonstrator ~
                        assistant computer officer ~ industrial manager3 ~ industrial expert3 ~ production expert3
                        ~ handicraft expert3 ~ welder3 ~ assistant researcher3 ~ laboratory expert3 ~ watercraft
                        chief3 ~ engine room chief3 ~ steerman3 ~ sailor3 ~ chief watercraft communications
                        officer ~ junior engine room officer ~ diver3 ~ measurer3 ~ station master ~ engine driver3
                        ~ communicator3 ~ driver/mechanic3 ~ driver3 ~ assistant geology officer3 ~ assistant
                        geology and physics officer3 ~ assistant geology and chemistry officer3 ~ petroleum expert3
                        ~ assistant mineralogy officer3 ~ assistant mines officer3 ~ junior engineer3 ~ drawing3 ~
                        printing3 ~ prediction3 ~ carpenter3 ~ mason3 ~ seller3 ~ chef3 ~ waiter3 ~ usher3 ~
                        baker3 ~ tour guide3 ~ glasses expert3 ~ butcher3 ~ washer3 ~ decorator3 ~ warden ~
                        mahout ~ tailor3 ~ room control3 ~ saw sharpener3 ~ knife sharpener3 ~ wood checker3 ~
                        saw machine operator ~ wood accountant3 ~ wood carpenter3 ~ wood buyer3 ~ materials
                        buyer3 ~ boiler controller3 ~ animal controller3 ~ assistant veterinarian officer ~ warden
                        ~ creek-in-charge ~ mahout ~ forest-in-charge ~ land surveyor3 ~ saw dust machine
                        operator3 ~ tractor driver3 ~ expert fisherman3 ~ deputy livestock breeding officer ~
                        deputy bee station-in-charge ~ co-trainer ~ deputy editor ~ primary school principal ~
                        middle school teacher ~ medical officer3 ~ pharmacy expert3 ~ compound medicine3 ~
                        nurse3 ~ assistant insect officer3 ~ printing expert3 ~ assistant literature officer3 ~ assistant
                        librarian3 ~ photography expert3 ~ broadcast expert3 ~ motion picture expert3 ~ artist3
                        ~ traditional flower arrangement3 ~ assistant museum officer3 ~ social welfare3 ~ deputy
                        immigration officer ~ assistant religious officer3 ~ deputy investigation officer ~ head of
                        market3 ~ police sergeant ~ translator3 ~ chief jailor ~ checking officer3 ~ censor officer3
                        ~ assistant registrar3 ~ demonstrator3 ~ expert3 ~ deputy surveillance officer3 ~ deputy tax
                        officer ~ assistant budget officer ~ video expert3 ~ deputy medical public relation officer
                        ~ record keeper
150,000/2,000/160,000   Assistant deputy chief officer ~ assistant deputy supervisor ~ junior clerk ~ junior typist
                        ~ accountant4 ~ auditor4 ~ cashier4 ~ materials controller4 ~ security officer4 ~ fire
                        sergeant ~ copier machine operator ~ machine operator4 ~ engine driver4 ~ electronic
                        expert4 ~ electricity expert4 ~ assistant deputy computer censorship officer ~ assistant
                        deputy demonstrator ~ industrial manager4 ~ industrial expert4 ~ production expert4 ~
                        handicraft expert4 ~ welder4 ~ assistant researcher4 ~ laboratory expert4 ~ watercraft
                        chief4 ~ engine room chief4 ~ steerman4 ~ sailor4 ~ diver4 ~ measurer4 ~ deputy station
                        master ~ engine driver4 ~ communicator4 ~ driver/mechanic4 ~ driver4 ~ assistant
                        geology officer4 ~ petroleum expert4 ~ assistant mineralogy officer4 ~ assistant geology
                        and physics officer4 ~ assistant geology and chemistry officer4 ~ assistant mines officer4 ~
                        junior engineer4 ~ drawing4 ~ printing4 ~ prediction4 ~ carpenter4 ~ mason4 ~ seller4 ~
                        chef4 ~ waiter4 ~ usher4 ~ baker4 ~ tour guide4 ~ glasses expert4 ~ butcher4 ~ washer4 ~
                        decorator4 ~ tailor4 ~ room control officer4 ~ creek-in-charge ~ mahout ~ raft controller
                        ~ saw sharpener4 ~ knife sharpener4 ~ wood checker4 ~ wood accountant4 ~ assistant
                        wood machine operator4 ~ wood combine4 ~ wood buyer4 ~ materials buyer4 ~ boiler
                        controller4 ~ warden ~ animal controller4 ~ land surveyor4 ~ saw dust machine operator4
                        ~ tractor driver4 ~ dam security ~ gardener ~ assistant livestock breeding officer ~ assistant
                        bee station-in-charge ~ expert fisherman4 ~ assistant trainer ~ assistant editor ~ primary
                        school teacher ~ medical officer4 ~ pharmacy expert4 ~ compound medicine4 ~ nurse4
                        ~ assistant insect officer4 ~ printing expert4 ~ assistant literature officer4 ~ assistant
                        librarian4 ~ photography expert4 ~ broadcast expert4 ~ motion picture expert4 ~ artist4
                        ~ traditional flower arrangement4 ~ assistant museum officer4 ~social welfare officer4 ~
                        assistant immigration officer ~ assistant religious officer4 ~ assistant investigation officer ~


                                                                                                                            155
                                                     Non-gazetted positions

       Base salary 2015-2016
                                                                                Job titles
       (in MMK)
       150,000/2,000/160,000         assistant jailor ~ prison sergeant ~ head of market4 ~ municipal worker1 ~ animal shelter
                                     worker4 ~ translator4 ~police sergeant ~ checking officer4 ~ censor officer4 ~ assistant
                                     surveillance officer ~ assistant registrar4 ~ assistant tax officer ~ storage head4 ~ distributor4
                                     ~ expert4 ~ video expert4


       135,000/2,000/145,000         Materials controller5 ~ security5 ~ fire sergeant ~ office helper/mail-in-charge ~ worker
                                     head ~ copier machine operator ~ cleaner/machine operator5 ~ driver/mechanic5 ~
                                     driver5 ~ electronic expert5 ~ electricity expert5 ~ industrial manager5 ~ production
                                     expert5 ~ handicraft expert5 ~ industrial expert5 ~ welder5 ~ assistant researcher5 ~
                                     laboratory expert5 ~ watercraft chief5 ~ engine room chief5 ~ steerman5 ~ sailor5 ~
                                     diver5 ~ communicator5 ~ measurer5 ~ assistant station master ~ engine driver5 ~
                                     petroleum expert5 ~ assistant geology officer5 ~ assistant mines officer5 ~ assistant
                                     mineralogy officer5 ~assistant geology and physics officer5 ~ assistant geology and
                                     chemistry officer5 ~ drawing5 ~ printing5 ~ prediction5 ~ carpenter5 ~ mason5 ~
                                     seller5 ~ chef5 ~ waiter5 ~ usher5 ~ baker5 ~ tour guide5 ~ glasses expert5 ~ butcher5
                                     ~ washer5 ~ decorator5 ~tailor5 ~ room control5 ~ mahout/ drum circle member
                                     ~ assistant raft controller ~ saw sharpener5 ~ knife sharpener5 ~ woods checker5 ~
                                     woods accountant5 ~ woods combine5 ~ wood buyer5 ~ materials buyer5 ~ boiler
                                     controller5 ~ assistant insect officer5 ~ woods sergeant ~ animal controller5 ~ land
                                     surveyor5 ~ saw dust machine operator5 ~ tractor driver5 ~ dam security helper ~
                                     gardener ~ taxidermy ~ expert fisherman5 ~ medical officer5 ~ pharmacy expert5
                                     ~ compound medicine5 ~ nurse5 ~ printing expert5 ~ assistant literature officer5
                                     ~ assistant librarian5 ~ photography expert5 ~ broadcast expert5 ~ motion picture
                                     expert5 ~ artist5 ~ traditional flower arrangement5 ~ assistant museum officer5 ~ head
                                     of market5 ~ social welfare5 ~ prison sergeant ~ deputy prison sergeant ~ clerk ~
                                     municipal worker2 ~ assistant animal shelter worker ~ tax collector ~ translator5 ~
                                     deputy police sergeant ~ checking officer5 ~ censor officer5 ~ assistant registrar5 ~
                                     deputy assistant tax officer ~ distributor5 ~ accountant5 ~ expert5 ~ video expert5
       120,000/2,000/130,000         Security ~ fireman ~ office helper/postman ~ worker ~ cleaner helper ~ watercraft
                                     worker (rudder) ~ sailor helper ~ prison private ~ municipal worker 3 ~ bobby ~ tax
                                     controller


      Source: Union Government, Notification no. 23/2015, 19 March 2015, Amendment of Job Titles of Government Officers and
      Employees




156
      Annex 5 Number of Assigned Vehicles by Department and Grade, 2016
      Table A3:    Number of assigned vehicles by department and grade, 2016


      Base pay grade,             500,000 +               380,000/4,000        340,000/4,000   310,000/4,000   280,000/4,000       250,000/4,000       Non-gazetted,
                                              500,000
      2015-2016, (in MMK)          200,000                  /400,000             /360,000        /330,000        /300,000            /270,000           all grades

                                                              Deputy             Assistant
                                   Perma-
                                              Director       permanent          permanent        Deputy           Assistant                              All non-
      Job titles (examples)         nent                                                                                            Staff officer
                                              general    secretary, Deputy       secretary,      director         director                               gazetted
                                  secretary
                                                          director general        Director
      Overview
      Total number of
                                                39              39                  39              39                39                  39                39
      submissions

      No. awarded allowance                     35              39                  37              36                19                  13                10

      % awarded allowance                       90%           100%                 95%             92%               49%                 33%               26%

                                                                                                                 1 or shared         1 or shared
      Minimum allowance (no. of                                                                                office vehicle or   office vehicle or
                                                 2              1                   1               1
      vehicles)                                                                                                 commuter bus        commuter bus
                                                                                                                   ("ferry")           ("ferry")

      Maximum allowance (no. of                                                                                                                        Commuter bus
                                                 3              3                   2               1                 2                   1
      vehicles)                                                                                                                                          ("ferry")

                                     No.        No.
      Ministry and Department                              No. vehicles        No. vehicles    No. vehicles     No. vehicles        No. vehicles       No. vehicles
                                   vehicles   vehicles

      Ministry of Education

      Office of the Minister of                                                                                                                        Commuter bus
                                      2                         2                   1               1                 1
      Education                                                                                                                                          ("ferry")

      Teacher training (head
                                                 3              2                   1               1                 1
      office)
157
158


      Base pay grade,               500,000 +              380,000/4,000        340,000/4,000        310,000/4,000      280,000/4,000        250,000/4,000       Non-gazetted,
                                                500,000
      2015-2016, (in MMK)            200,000                 /400,000             /360,000             /330,000           /300,000             /270,000           all grades

      Myanmar language
                                                  2               2                    1                   1
      education
                                                                                                     7 vehicles (no.
                                                                               4 vehicles ( no. of                     3 vehicles (no. of   2 vehicles (no. of   Commuter bus
      Myanmar examiner dept.                      2               2                                   of staff not
                                                                                staff not clear)                        staff not clear)     staff not clear)      ("ferry")
                                                                                                         clear)
      Human resource and
                                                  3               2                (Vacant)                1
      education project

      Higher education                            2               2                    1

                                                                                                     3 vehicles (no.
      Myanmar education research                  3               2                    2              of staff not             2                    1
                                                                                                         clear)

      Basic education                             2               2                    1                   1                   1

      Ministry of Labour, Immigration and Population

      Office of the Minister of                                                                                         Commuter bus         Commuter bus        Commuter bus
                                       3                          2                    1                   1
      Labor                                                                                                               ("ferry")            ("ferry")           ("ferry")
                                                                                                                        Commuter bus         Commuter bus        Commuter bus
      Social Security Board                       2               2                    1                   1
                                                                                                                          ("ferry")            ("ferry")           ("ferry")
                                                              1 & 2 (2                                                  Commuter bus         Commuter bus        Commuter bus
      Labor                                       3                                    1                   1
                                                            incumbents)                                                   ("ferry")            ("ferry")           ("ferry")
      Factories and General Labor
                                                          2 vehicles (no. of                                            Commuter bus         Commuter bus        Commuter bus
      Laws Inspection Dept.                       3                                    1                   1
                                                           staff not clear)                                               ("ferry")            ("ferry")           ("ferry")
      (FGLLID)
                                                                                                                        Commuter bus         Commuter bus        Commuter bus
      Labor relations                             2               1                                        1
                                                                                                                          ("ferry")            ("ferry")           ("ferry")
      Base pay grade,              500,000 +             380,000/4,000   340,000/4,000      310,000/4,000     280,000/4,000      250,000/4,000   Non-gazetted,
                                               500,000
      2015-2016, (in MMK)           200,000                /400,000        /360,000           /330,000          /300,000           /270,000       all grades

      Ministry of Electricity and Energy

      Office of the Minister of                                          4 vehicles for 5   6 vehicle for 7   2 vehicles for 6
                                      2                       1
      Energy                                                                  posts             posts              posts

      Ministry of Health and Sports

      Office of the Minister of
                                                 2            2                 1                 1           1 motor cycle      1 motor cycle
      Health

      Medical services                           2            2                 1                 1

      Medical research                           2            2                 1                 1                  1                1

      Human resources for health                 3            1                 1                 1                  1

      Traditional medicine                       2            2                 1                 1

      Food and drug
                                                 2            2                 1                 1
      administration

      Public health                              2            2                 1                 1

      Sports and physical
                                                 3            2                 1                 1
      education

      Ministry of Home Affairs

      General Administration
                                                 2            2                 1                 1              Various
      Dept. (GAD)

      Ministry of Planning and Finance (MOPF)

      Office of the Minister of
                                                 3            3                 1                 1
      MOPF
159
160


      Base pay grade,               500,000 +             380,000/4,000   340,000/4,000   310,000/4,000    280,000/4,000      250,000/4,000   Non-gazetted,
                                                500,000
      2015-2016, (in MMK)            200,000                /400,000        /360,000        /330,000         /300,000           /270,000       all grades

                                                                                                           Commuter bus       Commuter bus    Commuter bus
      Budget dept.                                2            1               1               1
                                                                                                             ("ferry")          ("ferry")       ("ferry")
      Central Equipment,
      Statistics, and Inspection                  2            2               1               1
      Dept. (CESID)
      Central Statistical
                                                  2            2               1               1
      Organization (CSO)

      Customs                                     2            2               1

      Directorate of
      Investment and Company                      2            2               1               1
      Administration (DICA)
                                                                                                             1 micro-bus
      Foreign Economic Relations                                                          1 (some may     9-seater (assumed   Commuter bus    Commuter bus
                                                  2            2               1
      (FERD)                                                                                  get 2)          commuter          ("ferry")       ("ferry")
                                                                                                               vehicle)
      Internal Revenue Dept.
                                                  2            2               1               1
      (IRD)
                                                                                                           Commuter bus       Commuter bus    Commuter bus
      Pension                                     2            2               1               1
                                                                                                             ("ferry")          ("ferry")       ("ferry")
                                                                                                           Commuter bus
      Revenue appellate tribunal                  3            1               1               1
                                                                                                             ("ferry")

      Treasury                                    2            2               1               1

      Union Civil Service Board (UCSB)

      UCSB - Office                                            2               1               1

      Civil Service Affairs Dept.
                                                  3            2               1               1
      (CSAD)
       Base pay grade,                    500,000 +                     380,000/4,000           340,000/4,000        310,000/4,000         280,000/4,000         250,000/4,000         Non-gazetted,
                                                         500,000
       2015-2016, (in MMK)                 200,000                        /400,000                /360,000             /330,000              /300,000              /270,000             all grades

        Civil Service Recruitment                                                                                      5 vehicles, 6
                                                             3                  2                      2
        Training College                                                                                                  posts
        Central Institution of Civil
                                                             2                  1                      1                     1                                           1
        Service (Paung Gyi)
        Central Institution of Civil
                                                             2                  1                      1
        Service (Upper Myanmar)


      Source: Compiled from department responses to customized form circulated by World Bank and MOPF Budget Department.
      Notes: Abbreviations used: PS = permanent secretary; asst. = assistant; dept. = department.
      1) Table excludes enterprises.
      2) Submitting departments are located in Nay Pyi Taw; allowance entitlements may not apply to staff outside of Nay Pyi Taw.
      3) Blanks and non-reporting by departments may mean that a) position does not exist in that department or is vacant b) no allowance for this position or (c) allowance exists but information was not
      provided. Submissions often provided information only for gazetted positions, and left non-gazetted cells blank.
      4) Vehicles may be older models. For example, Ministry of Labor listed vehicles from 1990s or early 2000s.
161
      Annex 6 Monthly Fuel Allowance and Estimated Kyat Value by Department and Grade, 2016
162



      Table A4:      Monthly fuel allowance and estimated kyat value by department and grade, 2016


      Base pay grade,                                                                                                                                        Non-
                                500,000 +                        380,000/4,000/    340,000/4,000/    310,000/4,000/    280,000/4,000/   250,000/4,000/
      2015-2016,                                    500,000                                                                                               gazetted, all
                                 200,000                             400,000           360,000           330,000           300,000          270,000
      (in MMK)                                                                                                                                              grades
                                                                     Deputy
                                                                                     Assistant
                                                                   permanent
       Job titles              Permanent         Director                           permanent                            Assistant                         All non-
                                                                    secretary,                       Deputy director                     Staff officer
       (examples)               secretary        general                             secretary,                          director                          gazetted
                                                                 Deputy director
                                                                                      Director
                                                                     general
       Overview
       Total number of
                                               38                 38                38                38                38               38                    43
       submissions
       No. awarded
                                               34                 37                36                37                25               4                     0
       allowance
       % awarded
                                              89%                97%               95%               97%               66%              11%                   0%
       allowance
       Minimum allowance
                                               80      206,392    40     103,196    40    103,196     20     51,598     10     25,799    10      25,799
       (gallons / kyat)
       Maximum
       allowance (gallons                     240      619,177    180    464,383    60    154,794     45     116,096    59    152,214    32      82,557
       / kyat)
       Ministry and                   Est.               Est.              Est.             Est.               Est.             Est.              Est.
                             Gal.             Gal.               Gal.              Gal.              Gal.              Gal.             Gal.
       Department                    value              value             value            value              value            value             value
       Ministry of Education
       Office of the
       Minister of            130   335,388                       120   309,589     55    141,895     45     116,096    30    77,397
       Education
       Teacher training
                                              120      309,589    70     180,593    45    116,096     37     95,457     20     51,598
       (head office)
      Base pay grade,                                                                                                                                         Non-
                            500,000 +                        380,000/4,000/     340,000/4,000/     310,000/4,000/     280,000/4,000/     250,000/4,000/
      2015-2016,                                500,000                                                                                                    gazetted, all
                             200,000                             400,000            360,000            330,000            300,000            270,000
      (in MMK)                                                                                                                                               grades
                                                                                                            103,196
      Myanmar language                                                                             40 &
                                          170      438,584    120     309,589    45    116,096                &
      education                                                                                     45
                                                                                                            116,096
                                                                                       108,356
                                                                                42 &     &                  108,356            108,356
      Myanmar examiner                                                                             42 &               42 &               30 (2
                                           80      206,392    80      206,392   64 &   165,114                &                  &                77,397
      dept.                                                                                         45                 54                staff)
                                                                                 75      &                  116,096            139,315
                                                                                       193,493
      Human resource                                                                                        116,096
                                                                                                   45 &
      and education                       180      464,383    120     309,589                                 &        20      51,598
                                                                                                    50
      project                                                                                               128,995
      Higher education                                                            -- no information received --
                                                                      167,694                      info
      Myanmar education                                      65 &
                                          177      456,643              &        51    131,575      not                59      152,214    32      82,557
      research                                                75
                                                                      193,493                      clear
      Basic education                      80      206,392    70      180,593    55    141,895       45     116,096    30      77,397
      Ministry of Labour, Immigration and Population
      Office of the
                          120   309,589                       100     257,991    50    128,995       40     103,196    10      25,799
      Minister of Labor
      Social Security
                                          120      309,589   vacant              50    128,995       35      90,297    15      38,699
      Board
                                                                                                              0&
                                                                                                  0 & 10    25,799              0&
      Labor                               138      356,027    80      206,392    50    128,995                        0 & 10
                                                                                                   & 40       &                25,799
                                                                                                            103,196
      Factories and
      General Labor
                                          130      335,388    80      206,392    42    108,356       35      90,297    10      25,799
      Laws Inspection
      (FGLLID)
163
164


      Base pay grade,                                                                                                                                 Non-
                             500,000 +                     380,000/4,000/   340,000/4,000/      310,000/4,000/   280,000/4,000/   250,000/4,000/
      2015-2016,                             500,000                                                                                               gazetted, all
                              200,000                          400,000          360,000             330,000          300,000          270,000
      (in MMK)                                                                                                                                       grades
      Labor relations                      109   281,210    50    128,995                        40    102,336
      Ministry of Electricity and Energy
                                                                                                       92,877
                                                                                      98,036             &
                                                                                                36 &
                                                                  103,196   38 &        &              98,036
      Office of the                                        40 &                                 38 &
                            50   128,995                            &       45 &      116,096            &        45    116,096
      Minister of Energy                                    50                                  45 &
                                                                  128,995    50         &              116,096
                                                                                                 50
                                                                                      128,995            &
                                                                                                       128,995
      Ministry of Health and Sports
      Office of the
                                           120   309,589   110    283,790     45      116,096    24     61,918    10     25,799    10     25,799
      Minister of Health
      Medical services                     160   412,785   120    309,589     45      116,096    35     90,297    18     46,438
                                                                             Info
      Medical research                     100   257,991    43    110,936                        45    116,096
                                                                            unclear
      Human resource for
                                           100   257,991    65    167,694     45      116,096    25     64,498    15     38,699
      health
      Traditional
                                           160   412,785   120    309,589     45      116,096    35     90,297    18     46,438
      medicine
      Food and drug
                                           160   412,785   120    309,589     45      116,096    35     90,297    18     46,438
      administration
      Public health                        160   412,785   120    309,589     45      116,096    35     90,297    18     46,438
      Sports and physical
                                           120   309,589   100    257,991     50      128,995    30     77,397    20     51,598
      education
      Ministry of Home Affairs
      General
      Administration                       120   309,589    40    103,196     40      103,196    40    103,196
      Department (GAD)
      Base pay grade,                                                                                                                              Non-
                            500,000 +                      380,000/4,000/   340,000/4,000/   310,000/4,000/   280,000/4,000/   250,000/4,000/
      2015-2016,                              500,000                                                                                           gazetted, all
                             200,000                           400,000          360,000          330,000          300,000          270,000
      (in MMK)                                                                                                                                    grades
      Ministry of Planning and Finance (MOPF)
      Office of the
                                         180     464,383   180    464,383    60    154,794    40    103,196
      Minister of MOPF
      Budget                             150     386,986   140    361,187    50    128,995    25    64,498
      Central Equipment,
      Statistics, and
      Inspection                         120     309,589   110    283,790    50    128,995    40    103,196
      Department
      (CESID)
      Central Statistical
                                         240     619,177   120    309,589    60    154,794    40    103,196    12    30,959
      Organization (CSO)
      Customs                            80      206,392   110    283,790    40    103,196
      Directorate
      of Investment
      and Company                        120     309,589   100    257,991    50    128,995    30    77,397     10    25,799
      Administration
      (DICA)
      Foreign Economic
      Relations Dept.                    120     309,589    90    232,192    40    103,196    25    64,498     27    69,657
      (FERD)
      Internal Revenue
                                         80      206,392    84    216,712    41    106,464    30    77,397
      Dept. (IRD)
      Pension                            100     257,991    84    216,712    50    128,995    30    77,397     20    51,598
      Revenue Appellate
                                         130     335,388    70    180,593    55    141,895    45    116,096    25    64,498
      Tribunal
      Treasury                           150     386,986    90    232,192    50    128,995    30    77,397
165
166


       Base pay grade,                                                                                                                                                                              Non-
                                     500,000 +                                380,000/4,000/         340,000/4,000/         310,000/4,000/         280,000/4,000/         250,000/4,000/
       2015-2016,                                           500,000                                                                                                                              gazetted, all
                                      200,000                                     400,000                360,000                330,000                300,000                270,000
       (in MMK)                                                                                                                                                                                    grades
        Union Civil Service Board (UCSB)
        UCSB - Office                                                          116      299,269        60      154,794        40      103,196
        Civil Service Affairs
                                                        108     278,630        92       237,351        58      149,635        38      98,036         10       25,799
        Dept. (CSAD)
        Civil Service
        Recruitment                                     130     335,388        100      257,991        58      149,635        38      98,036         10       25,799
        Training College
        Central Institution
        of Civil Service                                100     257,991        60       154,794        45      116,096        30      77,397                                30       77,397
        (Paung Gyi)
        Central Institution
        of Civil Service                                100     257,991        60       154,794        40      103,196        20      51,598
        (Upper Myanmar)


      Source: Compiled from department responses to customized form circulated by World Bank and MOPF Budget Dept.
      Notes: Abbreviations used: PS = permanent secretary; asst. = assistant; dept. = department.
      1) Table excludes enterprises.
      2) Submitting departments are located in Nay Pyi Taw; allowance entitlements may not apply to staff outside of Nay Pyi Taw.
      3) Blanks and non-reporting by departments may mean that a) position does not exist in that department or is vacant, b) there is no allowance for this position, or c) allowance exists, but information was
      not provided. (Submissions often provided information only for gazetted positions, and left non-gazetted cells blank.)
      4) Gallon amounts listed in table are sum of diesel plus petrol entitlements.
      5) Fuel value is calculated by multiplying the total allocation (diesel + petrol) by average price of diesel and petrol, converted from liters to imperial (UK) gallons.
      6) In some cases, officeholders receive a fuel allowance, but not a vehicle allowance.
      7) In some cases, departments noted that official fuel allowance is not awarded to all officeholders in practice due to shortages.
      8) “gal.” refers to imperial gallons.
       Table A5:      Estimated travel distance per fuel amount

                                                    Distance automobile can travel                 Distance motorcycle can travel
               Gallons (imperial)
                                                      Miles                Kilometers                 Miles               Kilometers
                         240                           4,800                   7,725                  10,800                  17,380
                         220                           4,400                   7,081                   9,900                  15,932
                         200                           4,000                   6,437                   9,000                  14,484
                         180                           3,600                   5,793                   8,100                  13,035
                         160                           3,200                   5,150                   7,200                  11,587
                         140                           2,800                   4,506                   6,300                  10,139
                         120                           2,400                   3,862                   5,400                  8,690
                         100                           2,000                   3,219                   4,500                  7,242
                         80                            1,600                   2,575                   3,600                  5,793
                         60                            1,200                   1,931                   2,700                  4,345
                         40                             800                    1,287                   1,800                  2,897
                         20                             400                     644                     900                   1,448
                         10                             200                     322                     450                    724

      Sources: For conversion and 2016 figures, see 2016 Fuel Consumption Guide, Natural Resources Canada, http://www.nrcan.
      gc.ca/energy/efficiency/transportation/cars-light-trucks/buying/7487 (accessed 13 August 2016). For second hand cars, see Fuel
      Consumption Ratings Search Tool, Natural Resources Canada, http://oee.nrcan.gc.ca/fcr-rcf/public/index-e.cfm (accessed 13 August
      2016). For motorcycles, see Total Motorcycle at http://www.totalmotorcycle.com; and Total Motorcycle's Fuel Economy Guide v4.0,
      http://www.totalmotorcycle.com/MotorcycleFuelEconomyGuide/index.htm (accessed 13 August 2016).
      Note: Because fuel consumption depends on many different factors, it is not possible to give a global estimate of how far a vehicle can
      travel on one gallon. The above estimates are based on fuel consumption data for older-model cars and motorcycles. The table assumes
      moderate fuel efficiency of 20 miles per gallon for a car, and 45 miles per gallon for a motorcycle. Estimates are for imperial gallons,
      the unit of measure used in Myanmar.
      One mile = 1.6093 kilometers.




167
      Annex 7 Monthly Telephone Allowance by Department and Grade, 2016 (in MMK)
168



      Table A6:      Monthly telephone allowance by department and grade, 2016 (in MMK)


                                                                                                                                                    Non-
      Base pay grade,           500,000 +                 380,000/4,000/    340,000/4,000/   310,000/4,000/    280,000/4,000/   250,000/4,000/
                                              500,000                                                                                            gazetted,
      2015-2016, (in MMK)        200,000                      400,000           360,000          330,000           300,000          270,000
                                                                                                                                                 all grades
                                                              Deputy
                                                                               Assistant
                                                            permanent
                                Permanent     Director                        permanent                          Assistant                       All non-
      Job titles (examples)                                  secretary,                      Deputy director                     Staff officer
                                 secretary    general                          secretary,                        director                        gazetted
                                                          Deputy director
                                                                                Director
                                                              general
      Overview
      Total no. of
                                                 38             38                38               38               38                38            42
      submissions
      No. awarded allowance                      17             18                16               13                6                1              0
      % awarded allowance                       45%            47%               42%              34%               16%              3%             0%
      Minimum allowance
                                               10,000         10,000            10,000           10,000            10,000           10,000
      (in MMK)

      Maximum allowance
                                               50,000         40,000            25,000           20,000            15,000
      (in MMK)

      Ministry and              Allowance    Allowance      Allowance          Allowance       Allowance         Allowance        Allowance      Allowance
      Department                (in MMK)     (in MMK)       (in MMK)           (in MMK)        (in MMK)          (in MMK)         (in MMK)       (in MMK)
      Ministry of Education
      Office of the Minister
                                  30,000                      20,000            20,000
      of Education
      Teacher education
                                               None            None              None             None             None             None
      (head office)
      Myanmar language
                                               30,000         25,000
      education
                                                                                                                                                                Non-
      Base pay grade,          500,000 +                      380,000/4,000/        340,000/4,000/      310,000/4,000/     280,000/4,000/   250,000/4,000/
                                               500,000                                                                                                       gazetted,
      2015-2016, (in MMK)       200,000                           400,000               360,000             330,000            300,000          270,000
                                                                                                                                                             all grades
      Myanmar examiner
                                                20,000                                  20,000              20,000
      dept.
      Human resource and
                                                20,000             20,000
      education project
                                                Actual
                                                              Actual expenses       Actual expenses     Actual expenses
                                               expenses
      Higher education                                          paid (up to           paid (up to         paid (up to
                                              paid (up to
                                                                 100,000)              100,000)            100,000)
                                               100,000)
      Myanmar education
                                                50,000             30,000               10,000              10,000             10,000
      research
      Basic education                            None              None                  None                None              None             None
      Ministry of Labour, Immigration and Population
                               Landline +                    Car phone bill paid    Car phone bill        Car phone bill
      Office of the Minister
                               mobile bills                   + mobile up to       paid + mobile up     paid + mobile up
      of Labor
                               reimbursed                          10,000              to 10,000             to 5,000
                                              Landline
                                               bill paid
                                                                                    Landline bill +       Landline bill
                                                and +
      Social Security Board                                        vacant            mobile up to        + mobile up to
                                              mobile up
                                                                                       20,000                5,000
                                              to MMK
                                                50,000
                                                                                       Mobile bill
                                                                                       reimbursed
                                              Landline +
                                                             Landline + mobile      (unclear whether
      Labor                                   mobile bills
                                                              bills reimbursed     each staff has own
                                              reimbursed
                                                                                    mobile or shares
                                                                                        a mobile)
169
170


                                                                                                                                                             Non-
      Base pay grade,          500,000 +                  380,000/4,000/        340,000/4,000/     310,000/4,000/     280,000/4,000/     250,000/4,000/
                                            500,000                                                                                                       gazetted,
      2015-2016, (in MMK)       200,000                       400,000               360,000            330,000            300,000            270,000
                                                                                                                                                          all grades
                                              Actual
      Factories and General                 expenses                            Actual expenses    Actual expenses
                                                          Actual expenses
      Labor Laws Inspection                 paid for 2                          paid for shared    paid for shared
                                                         paid for 2 landlines
      (FGLLID)                             mobiles + 2                              landline           landline
                                            landlines
                                             2 home
                                            landlines,    1 home landline,                          Home landline      Home landline
      Labor relations
                                               bills       bill reimbursed                         bill up to 5,000   bill up to 5,000
                                           reimbursed
      Ministry of Electricity and Energy
      Office of the Minister
      of Energy
      Ministry of Health and Sports
      Office of the Minister
                                             None               None                 None               None               None              None           None
      of Health
      Medical services                       None               None                 None               None               None
      Medical research                       None               None                 None               None               None              None
      Human resource for
      health
      Traditional medicine                   None               None                 None               None               None
                                            3 phone
      Food and drug                          cards (     2 cards (10,000 per
                                                                                1 card ( 10,000)    1 card ( 5,000)
      administration                       10,000 per           card)
                                              card)
      Public health                          None               None                 None               None               None
      Sports and physical
                                               --              25,000               25,000             15,000             15,000
      education
                                                                                                                                                Non-
      Base pay grade,          500,000 +             380,000/4,000/   340,000/4,000/     310,000/4,000/    280,000/4,000/   250,000/4,000/
                                           500,000                                                                                           gazetted,
      2015-2016, (in MMK)       200,000                  400,000          360,000            330,000           300,000          270,000
                                                                                                                                             all grades
      Ministry of Home Affairs
      General
      Administration Dept.                                                None                None             None             None           None
      (GAD)
      Ministry of Planning and Finance (MOPF)
      Office of the Minister
                                           20,000        20,000           15,000              12,000           10,000
      of MOPF
      Budget                               None          None             None                None             None             None           None
      Central Equipment
      Statistics and
                                                                           -- No information received --
      Inspection Dept.
      (CESID)
      Central Statistical
                                           10,000        10,000           10,000              10,000           10,000
      Organization (CSO)
      Customs                              None          None             None                None             None             None           None
      Directorate
      of Investment
      and Company                          50,000        40,000           15,000              10,000
      Administration
      (DICA)
      Foreign Economic
      Relations Dept.                      None          None             None                None             None             None           None
      (FERD)
      Internal Revenue
                                           None          None             None                None             None             None           None
      Dept. (IRD)
      Pension                              None          None             None                None             None             None           None
171
172


                                                                                                                                                                                                        Non-
       Base pay grade,                 500,000 +                           380,000/4,000/           340,000/4,000/          310,000/4,000/         280,000/4,000/           250,000/4,000/
                                                          500,000                                                                                                                                    gazetted,
       2015-2016, (in MMK)              200,000                                400,000                  360,000                 330,000                300,000                  270,000
                                                                                                                                                                                                     all grades
                                                          Home
                                                        phone paid;
                                                                         Home phone paid;
        Revenue Appellate                                advance                                  Advance payment
                                                                          advance payment
        Tribunal                                         payment                                  for mobile airtime
                                                                         for mobile airtime
                                                        for mobile
                                                          airtime
        Treasury                                            None                 None                     None                    None                   None                     None                 None
        Union Civil Service Board (UCSB)
        UCSB Office                                                         40,000 (cash)            30,000 (cash)           10,000 (cash )          10,000 (cash )          10,000 (cash )
        Civil Service Affairs                              50,000
                                                                            40,000 (cash)            30,000 (cash)
        Dept. (CSAD)                                       (cash)
        Civil Service
                                                          response
        Recruitment Training                                              response unclear         response unclear
                                                           unclear
        College
        Central Institution of
        Civil Service (Paung                                None                 None                     None                    None                   None                     None                 None
        Gyi)
        Central Institution of
                                                           50,000
        Civil Service (Upper                                                50,000 (cash)
                                                           (cash)
        Myanmar)


      Source: Compiled from department responses to customized form circulated by World Bank and MOPF Budget Department.
      Notes: Abbreviations used: PS = permanent secretary; asst. = assistant; dept. = department.
      1) Table excludes enterprises.
      2) Submitting departments are located in Nay Pyi Taw; allowance entitlements may not apply to staff outside of Nay Pyi Taw.
      3) Blanks and non-reporting by departments may mean that a) the position does not exist in that department or is vacant, b) there is no allowance for this position, or c) an allowance exists but information
      was not provided.
      4) Submissions often provided information only for gazetted positions and left non-gazetted cells blank.
      Annex 8 Housing Benefit by Department and Grade, 2016
      Table A7:      Housing benefit by department and grade, 2016


                                                                                                                                                                     Non-
      Base pay grade,            500,000 +                   380,000/4,000/       340,000/4,000/       310,000/4,000/     280,000/4,000/     250,000/4,000/
                                                500,000                                                                                                           gazetted, all
      2015-2016, (in MMK)         200,000                        400,000              360,000              330,000            300,000            270,000
                                                                                                                                                                    grades
                                                                 Deputy
                                                                                     Assistant
                                                               permanent
                                Permanent      Director                             permanent                                Assistant                              All non-
      Job titles (examples)                                     secretary,                             Deputy director                         Staff officer
                                 secretary     general                               secretary,                              director                               gazetted
                                                             Deputy director
                                                                                      Director
                                                                 general
      Overview
      Total no. of
                                                   33               33                   33                   33                33                  33                  33
      submissions
      No. awarded
                                                   28               29                   30                   30                31                  30                  27
      allowance
      % awarded allowance                         85%              88%                  91%                  91%               94%                 91%                 82%
                                               Apt., some      Shared apt.,         Dormitory or
      Minimum allowance                        pay 10% of    some pay 10% of       room in shared        Dormitory          Dormitory           Dormitory          Dormitory
                                                  salary          salary               apt.

                                                2-story       2 story house,                                                                                       House/apt.,
      Maximum allowance                                                               Apt., free          Apt., free      House/apt., free   House/apt., free
                                               house, free      some fees                                                                                             free

      Ministry and
                                 Housing       Housing           Housing              Housing             Housing            Housing             Housing            Housing
      Department
      Ministry of Education
                                                                                                                                                                   4 rooms/4
                                                                                  4 rooms/4 floors,       4 rooms/4          4 rooms/4       4 rooms/4 floors,
      Office of the Minister                                 2 rooms/4 floors,                                                                                    floors, non-
                                Duplex, free                                      gazetted housing,    floors, gazetted   floors, gazetted   gazetted housing,
      of Education                                                 free                                                                                             gazetted
                                                                                         free            housing, free      housing, free           free
                                                                                                                                                                  housing, free
      Teacher training (head                                 3 units/2 story (3   4 units/4 story (3    4 units/4 story   4 units/4 story    6 units/4 story (2   6 units/4 story
                                                 None
      office)                                                   beds), free          beds), free         (3 beds), free    (3 beds), free       beds), free          (2 beds)
173
174


                                                                                                                                                                  Non-
      Base pay grade,       500,000 +                 380,000/4,000/        340,000/4,000/       310,000/4,000/      280,000/4,000/       250,000/4,000/
                                         500,000                                                                                                               gazetted, all
      2015-2016, (in MMK)    200,000                      400,000               360,000              330,000             300,000              270,000
                                                                                                                                                                 grades
      Myanmar language                   Duplex,      4 units/4 story (3   4 units/4 story (3    4 units/4 story      4 units/4 story    4 units/4 story (3    4 units/4 story
      education                           free           beds), free          beds), free         (3 beds), free       (3 beds), free       beds), free         (2 beds), free
      Myanmar examiner                                                                                                4 units/4 story    4 units/4 story (3    2 units/4 story
                                           Apt.             None             Room in apt.             None
      dept.                                                                                                              (3 beds)              beds)              (2 beds)
      Human resource and                              3 units/2 story (3   4 units/4 story (3    4 units/4 story      4 units/4 story    6 units/4 story (2
                                          House                                                                                                                    None
      education project                                     beds)                beds)              (3 beds)             (3 beds)              beds)
                                                                                                                                                                Staff and 4
                                                                                                                                                               units/4 story
                                           2 story
                                                                                                                                                               non-gazetted
                                        house, fees
                                                        2 story house,                                                                                           housing,
                                          collected
                                                      fees collected per                                                                                        depending
                                         per school
                                                        school mgmt.       2 units/1-story gazetted housing, 3 units/4-story and teachers’ dormitories; fees   upon position
      Higher education                     mgmt.
                                                          committee               collected per school mgmt. committee decisions and defined rates             Fees collected
                                        commit-tee
                                                        decisions and                                                                                           per school
                                         decisions
                                                        defined rates                                                                                             mgmt.
                                        and defined
                                                                                                                                                                committee
                                            rates
                                                                                                                                                               decisions and
                                                                                                                                                               defined rates
                                                      1 vice-director:
                                                      4 units/4 storey
      Myanmar education                  Duplex,      (3 beds), free; 1    6 units/4 story (3    4 units/4 story      4 units/4 story                          4 units/4 story
      research                            free        vice-director: 2        beds), free         (3 beds), free       (3 beds), free                           (2 beds), free
                                                      units/3 story (3
                                                         beds), free
                                                                                                   Apts. and            Apts. and           Apts. and             Apts. and
                                                        Have not yet         Have not yet
                                                                                                   dormitory            dormitory        dormitory rooms;        dormitory
      Basic education                      Apt.       received housing     received housing
                                                                                                rooms; 5 housed,     rooms; 3 housed,    3 housed, 55 not       rooms; none
                                                            (apt.)               (apt.)
                                                                                                   10 not yet           25 not yet             yet               are housed
                                                                                                                                                                           Non-
      Base pay grade,            500,000 +                      380,000/4,000/        340,000/4,000/       310,000/4,000/     280,000/4,000/      250,000/4,000/
                                                  500,000                                                                                                               gazetted, all
      2015-2016, (in MMK)         200,000                           400,000               360,000              330,000            300,000             270,000
                                                                                                                                                                          grades
      Ministry of Labour, Immigration and Population
      Office of the Minister
                                                                                            --- No information provided ---
      of Labor
                                                                                                                                                                        Avg. cost per
                                                                                                                                                                        month: office
                                                                                                                                                                        head, MMK
                                                                                                                                                                        30,000; vice-
                                                                                                                                                                         supervisor,
                                                                                                                                                                        MMK 60,000;
                                                                                                                                                 Avg. cost: MMK          senior clerk
      Social Security Board
                                                                                                                                                 9,474 per month        MMK 6,000;
                                                                                                                                                                         junior clerk
                                                                                                                                                                        MMK 9,714;
                                                                                                                                                                        driver MMK
                                                                                                                                                                        6,000; office
                                                                                                                                                                        helper MMK
                                                                                                                                                                            6,000
      Labor                                                                                 --- No information provided ---
      Factories and General
      Labor Laws Inspection                                                                 --- No information provided ---
      Dept.
      Labor relations                                                                       --- No information provided ---
      Ministry of Electricity and Energy
      Office of the Minister
                                                                                            --- No information provided ---
      of Energy
      Ministry of Health and Sports
      Office of the Minister
                               Staff in Nay Pyi Taw lives rent free in housing provided according to their position --
      of Health
      Medical services         Staff in Nay Pyi Taw lives rent free in housing provided by Nay Pyi Taw Municipal Council; housing type varies according to position.-
175
176


                                                                                                                                                                          Non-
      Base pay grade,            500,000 +                      380,000/4,000/       340,000/4,000/        310,000/4,000/      280,000/4,000/      250,000/4,000/
                                                  500,000                                                                                                              gazetted, all
      2015-2016, (in MMK)         200,000                           400,000              360,000               330,000             300,000             270,000
                                                                                                                                                                         grades
      Medical research         Staff in Nay Pyi Taw lives rent free in housing provided according to their position.
      Human resource for
                               Staff in Nay Pyi Taw lives rent free in housing provided according to their position.
      health
      Traditional medicine     Staff in Nay Pyi Taw lives rent free in housing provided by Nay Pyi Taw Municipal Council; housing type varies according to position.
      Food and drug
                               Staff in Nay Pyi Taw lives rent free in housing provided by Nay Pyi Taw Municipal Council; housing type varies according to position.
      administration
      Public health            Staff in Nay Pyi Taw lives rent free in housing provided by Nay Pyi Taw Municipal Council; housing type varies according to position.
      Sports and physical
                               Staff in Nay Pyi Taw lives rent free in housing provided according to their position.
      education
      Ministry of Home Affairs
      General                                                                                                                                                            Apt., free
      Administration Dept.                      House, free     House/apt., free     House/apt., free         Apt., free      House/apt., free     House/apt., free       - or own
      (GAD)                                                                                                                                                            arrangements
      Ministry of Planning and Finance (MOPF)
      Office of the Minister                                                                                                                                              Apt. or
                                                                   Apt., free            Apt., free           Apt., free          Apt., free            Apt., free
      of MOPF                                                                                                                                                          dormitory, free
      Budget                                                      Staff lives rent free in government-provided housing according to their position --
      Central Equipment
      Statistics and
                                                                                            -- No information provided --
      Inspection Dept.
      (CESID)
                                                                                                                                                   Married staff in
                                                                                                                                                    4 unit 4 storey,
      Central Statistical                          1-story                                                                                           single staff in
                                                                 2 units/3 story      2 units/3 story      4 units/4 story     4 units/4 story
      Organization (CSO)                           house                                                                                            dormitory (for
                                                                                                                                                  staff based in Nay
                                                                                                                                                        Pyi Taw)
                                                                                                                                                                        Non-
      Base pay grade,         500,000 +                     380,000/4,000/       340,000/4,000/        310,000/4,000/     280,000/4,000/      250,000/4,000/
                                               500,000                                                                                                               gazetted, all
      2015-2016, (in MMK)      200,000                          400,000              360,000               330,000            300,000             270,000
                                                                                                                                                                       grades
                                             House; pay
                                                             Unit apt.; pay     Unit apt.; pay 10%     Unit apt.; pay      Unit apt.; pay       Unit apt.; pay      Unit apt.; pay
      Customs                                 10% of
                                                             10% of salary           of salary         10% of salary       10% of salary        10% of salary       10% of salary
                                               salary
      Directorate
      of Investment
      and Company                               None              None                 None                 None
      Administration
      (DICA)
                                                                                                                                                                          For
                                                                                                                                                                      supervisors
      Foreign Economic                                                                                 2 units/3 story,                                                & deputy
                                              2-story        2 units/2 story,     4 units/4 story,                                            4 units/4 story, or
      Relations Dept.                                                                                    or 4 units/4      4 units/4 story                          supervisors - 6
                                             house, free           free                 free                                                    6 units/4 story
      (FERD)                                                                                                 story                                                   units/4 story,
                                                                                                                                                                     or 24 units/2
                                                                                                                                                                         story
      Internal Revenue                        2-story        2 units/2 story,     2 units/3 story,     4 units/4 story,   4 units/4 story,     4 units/4 story,      Dormitories,
      (IRD)                                  house, free           free                 free                 free               free                 free               free
                                                                                                                                                                    6 units/4 story
                                              2-story        2 units/3 story,   2 units/3 store or     6 units/4 story,   6 units/4 story,     6 units/4 story,
      Pension                                                                                                                                                        or 24 units/2
                                             house, free           free         6 unit 4 story, free         free               free                 free
                                                                                                                                                                       story, free
      Revenue Appellate                       2-story        2 units/3 story,     2 units/3 story,     4 units/4 story,   4 units/4 story,     4 units/4 story,     6 units/4 story
      Tribunal                               house, free           free                 free                 free               free                 free            or other, free
                                                                                                                           4 units/4 story                          6 units/2 story,
                                                                                                       4 units/4 story                        4 units/4 story or
                                                                                2 units/3 story or                          or 6 units/4                            4 units/4 story,
      Treasury                                               2 units/3 story                            or 6 units/4                          6 units/4 story or
                                                                                 4 units/4 story                             story or 24                             or 24 units/2
                                                                                                            story                              24 units/2 story
                                                                                                                            units/2 story                                story
      Union Civil Service Board (UCSB)
      UCSB - Office         Staff in Nay Pyi Taw lives rent free in housing provided by Nay Pyi Taw Municipal Council; housing type varies according to position.
177
178


                                                                                                                                                                                                 Non-
       Base pay grade,                 500,000 +                         380,000/4,000/          340,000/4,000/         310,000/4,000/         280,000/4,000/         250,000/4,000/
                                                          500,000                                                                                                                             gazetted, all
       2015-2016, (in MMK)              200,000                              400,000                 360,000                330,000                300,000                270,000
                                                                                                                                                                                                grades
        Civil Service Affairs
                                    Staff in Nay Pyi Taw lives rent free in housing provided by Nay Pyi Taw Municipal Council; housing type varies according to position.
        Dept. (CSAD)
        Civil Service
        Recruitment Training        Staff in Nay Pyi Taw lives rent free in housing provided by Nay Pyi Taw Municipal Council; housing type varies according to position.
        College
        Central Institution of
        Civil Service (Paung        Staff lives rent-free in staff housing; type varies according to position.
        Gyi)
        Central Institution of
        Civil Service (Upper        Staff lives rent-free in staff housing; type varies according to position.
        Myanmar)

      Source: Compiled from department responses to customized form circulated by World Bank and MOPF Budget Dept.
      Notes: Abbreviations used: PS = permanent secretary; asst. = assistant; dept. = department, mgmt. = management.
      1) Table excludes enterprises.
      2) Submitting departments are located in Nay Pyi Taw; allowance entitlements (especially for housing) may not apply to staff outside of Nay Pyi Taw.
      3) Blanks and non-reporting by departments may mean that (a) the position does not exist in that department or is vacant, (b) there is no allowance for this position, or (c) an allowance exists but
      information was not provided. Submissions often provided information only for gazetted positions, and left non-gazetted cells blank.
      4) Abbreviation “apt.” stands for apartment.
      5) Housing descriptions: “Duplex” means a single-family house with two stories. Descriptions, for example, “6 units/4 story (3 beds)” mean a three-bedroom apartment in a four-storey building that has
      six units in each storey, and so on. In shared apartments, single employees each get a private bedroom. Employees with families typically receive an entire apartment for the family, which is not shared.
Annex 9 	 MPLCS Data and Comparisons with Civil Service Base
		Salaries

Table A8:      Selected data from the 2015 MPLCS

                                                                     National               Urban                 Rural
 Total consumption expenditures per adult equivalent, MMK/day
 Mean expenditures                                                     2,176                 3,215                 1,684
 Median expenditures                                                   1,631                 2,360                 1,471
 Consumption expenditure by quintile
   First                                                                845                  1,186                  779
   Second                                                              1,246                 1,732                 1,142
   Third                                                               1,631                 2,361                 1,472
   Fourth                                                              2,193                 3,230                 1,913
   Fifth                                                               3,511                 5,476                 2,793
 Household composition
 Household size                                                         5.50                  5.68                 5.43
 Household members of working age                                       3.42                  3.82                 3.27
 Household size by quintile
   First                                                                6.47
   Second                                                               5.54
   Third                                                                5.14
   Fourth                                                               5.12
   Fifth                                                                4.77
Source: Report of 2015 MPLCS
Notes: Consumption expenditures are in January 2015 prices and comprise spending on food, non-food items, education, housing, and
the value of use of durable goods.




                                                                                                                                179
      Table A9:        Estimated total consumption expenditures per household, MMK/month

                                                                            National               Urban                 Rural
       Mean                                                                  363,607               554,886               277,849
       Median                                                                272,616               407,255               242,805
       Estimated consumption expenditure by quintile
         First                                                               141,278               204,618               128,550
         Second                                                              208,134               298,986               188,375
         Third                                                               272,616               407,389               242,886
         Fourth                                                              366,404               557,448               315,626
         Fifth                                                               586,736               945,108               460,817

      Source: 2015 MPLCS data and World Bank calculations
      Notes: Household consumption is an overestimate, calculated as average household size x total consumption per adult equivalent, as
      opposed to per capita. Calculations assume 30.4 days per month. Consumption expenditures are in January 2015 prices.



      Table A10: Base salary as multiple of monthly total consumption expenditures per adult equivalent


                                       Base salary                       Mean                                  Median
                                       (in MMK)          National       Urban          Rural     National       Urban         Rural
       Gazetted posts
       Director general                   500,000            7.6           5.1          n/a         10.1          7.0          n/a
       Deputy director general            390,000            5.9           4.0          7.6          7.9          5.4           8.7
       Director                           350,000            5.3           3.6          6.8          7.1          4.9           7.8
       Deputy director                    320,000            4.8           3.3          6.3          6.5          4.5           7.2
       Assistant director                 290,000            4.4           3.0          5.7          5.8          4.0           6.5
       Staff officer                      260,000            3.9           2.7          5.1          5.2          3.6           5.8
       Non-gazetted posts
       Police lieutenant                  215,000            3.3           2.2          4.2          4.3          3.0           4.8
       Office superintendent              200,000            3.0           2.0          3.9          4.0          2.8           4.5
       Deputy staff officer               185,000            2.8           1.9          3.6          3.7          2.6           4.1
       Upper division clerk               170,000            2.6           1.7          3.3          3.4          2.4           3.8
       Lower division clerk               155,000            2.3           1.6          3.0          3.1          2.2           3.5
       Record keeper                      140,000            2.1           1.4          2.7          2.8          2.0           3.1
       Peon                               125,000            1.9           1.3          2.4          2.5          1.7           2.8

      Source: 2015 MPLCS data and World Bank calculations.
      Notes: Base salary is mid-point of each grade. Calculations assume 30.4 days per month.




180
Annex 10 	Compensation Questions from a Small Survey of
		Civil Servants
This table presents results from the compensation section of the pilot survey of civil servants, administered
between February and May 2016. Jeffery Marshall (consultant) carried out statistical analysis of the survey
results.

Table A11:    Compensation questions from a small survey of civil servants

                                                                              % of
                                                                                           Staff subsamples
                                                                             all staff
 Survey questions
                                                                                                      Non-
                                                                                         Gazetted
                                                                                                     gazetted
 S7Q1. It is easy to understand how much compensation (monetary and
 nonmonetary) is paid for different jobs in the civil service.
    No                                                                         40.5        52.2        30.0
    Yes                                                                        31.1        28.9        33.0
    Don’t know/No answer/Multiple answers                                      28.4        18.9        37.0
                                                                                         p=0.00*
 S7Q2. The official compensation in the civil service (including monetary
 and nonmonetary allowances) is sufficient to attract and retain qualified
 and skilled people.
    No                                                                         65.8        75.7        57.0
    Yes                                                                        22.6        17.8        27.0
    Don’t know/No answer/Multiple answers                                      11.6        6.7         16.0
                                                                                         p=0.02*
 S7Q3. The official earnings in the civil service (including monetary and
 nonmonetary allowances) are sufficient to cover the basic living expenses
 (accommodation and food) of a family.
    No                                                                         86.8        80.0        93.0
    Yes                                                                        11.6        17.8         6.0
    Don’t know/No answer/Multiple answers                                       1.6        2.2          1.0
                                                                                         p=0.03*
 S7Q4. In addition to my civil service job, I regularly undertake/do other
 paid work.
    No                                                                         86.1        81.6        90.0
    Yes                                                                        12.8        17.2         9.0
    Don’t know/No answer/Multiple answers                                       1.1        1.2          1.0
                                                                                          p=0.24




                                                                                                                181
                                                                                   % of
                                                                                                Staff subsamples
                                                                                  all staff
      Survey questions
                                                                                                           Non-
                                                                                              Gazetted
                                                                                                          gazetted
      S7Q5. The compensation system in the civil service (including monetary
      and nonmonetary allowances) is fair and equitable. Jobs that have similar
      levels of responsibility are compensated equally.
         No                                                                         41.1        50.0        33.0
         Yes                                                                        32.1        28.9        35.0
         Don’t know/No answer/Multiple answers                                      26.8        21.1        32.0
                                                                                              p=0.05*
      S7Q6. Civil servants resign from their jobs because of insufficient
      income.
         No                                                                         48.2        45.7        50.5
         Yes                                                                        41.3        43.3        39.4
         Don’t know/No answer/Multiple answers                                      10.6        11.1        10.1
                                                                                               p=0.79
      S7Q7. In the past 12 months, I have made serious efforts to find full-
      time work elsewhere, so that I can leave the civil service.
         No                                                                         88.4        86.7        90.0
         Yes                                                                         6.8        8.9          5.0
         Don’t know/No answer/Multiple answers                                       4.7        4.4          5.0
                                                                                               p=0.57
      S7Q8. I would recommend to other people that they seek a job in the
      civil service.
         No                                                                         23.8        27.0        21.0
         Yes                                                                        73.0        67.4        78.0
         Don’t know/No answer/Multiple answers                                       3.2        5.6          1.0
                                                                                               p=0.10




182
Annex 11 	Developing Appropriate Rates and Regulations for 	
			       Operational Allowances
Myanmar government officials and World Bank sector specialists are concerned that certain operational
allowances are inadequate to cover costs, and that the rules concerning which types of expenses (e.g., trips
and distances) are covered discourage workers from undertaking tasks when costs are not reimbursed. This
seriously limits the ability of the staff to do their job effectively, including providing services to people.

This issue affects multiple sectors, most notably health and education, which are on the front line of delivering
basic services and employ large numbers of staff. As an example of the gravity and detrimental impact of some
of the current allowances, consider health-care outreach workers who must visit clients (e.g., midwives who
provide care to pregnant women in rural areas), but must either pay transportation costs from their own funds
or skip visiting clients if the trip cost is not covered.

Subject to the Government of Myanmar’s interest, the World Bank could provide hands-on analytical support,
aiming to gather a reasonable set of data and provide practical analysis and projections with minimal delay.
Sector specialists are best positioned to lead this assistance, since they know the nuances and dynamics of
service delivery in their sectors and have the necessary relationships with government and other partners.
Financial management and budget experts would help as needed.

Below are questions proposed for data gathering, analysis, and projections. This is a first set of ideas, which can
be elaborated if there is interest:

    •	 Establish a starting point.
    	   -	   Determine if the Government wants this type of assistance.
    	   -	   Determine what approach the Government is following at present to update rates and rules (e.g.,
             data, assumptions, analysis, etc.).
    	   -	   Evaluate if the approach can be improved and whether it is sufficient.
    •	 Gather detailed data on existing allowances, not only for the rules and rates, but also for other areas.
    	   -	   Which types of positions or what staff must travel as part of their work?
    	   -	   How many trips (if necessary) does each staff member typically make in a month or other relevant
             period?
    	   -	   What areas are staff required to travel to (e.g., rural or urban) and how far must they typically travel
             to or within these areas?
    	   -	   What types of expenses do such trips entail (e.g., transportation, accommodation, meals,
             communication)?
    	   -	   What is the total budgetary cost per month (or other relevant period) of the current system (i.e.,
             current rates, current numbers of trips, etc.)?
    •	 Project rates, usage, and costs for any proposed changes to existing rates and rules.
    	   -	   How can the Government estimate typical costs for the above expense items?
    	   -	   How do these costs vary (e.g., rural versus urban, regional versus local differences, such as Yangon
             or other high cost locations)? Is there a need to have differentiated rates to reflect such variations
             or is a single rate adequate?
    	   -	   Is the current usage (e.g., number of trips) lower than needed because reimbursement is inadequate?

                                                                                                                        183
               If so, how much would usage increase if reasonable reimbursement rates were offered? What
               other factors would increase/decrease travel costs (e.g., new services or outreach efforts that
               require travel or use of video or cell phone facilities that reduce need for travel, etc.)?
      	   -	   What would the cost implications be for ministry or facility budgets? (This would involve creating
               a “mini-model” spreadsheet that can be adjusted to reflect a range of assumptions about rates and
               other factors that affect costs.)


       




184
Annex 12 	Human Resource Management System Survey

Introduction
This document provides a brief summary of the human resource management (HRM) survey data147 that were
recently collected in Myanmar. The database includes 190 government staff, divided into 90 gazetted and 100
non-gazetted officers. The results are presented using the same subsections that are included in the survey
questionnaire. This begins with questions related to background of the respondent (“part A”) and then, in part
B, the survey includes seven subsections of questions related to specific human resource management topics.
There are 32 questions in part B.

The results are divided into two sections. Section 2 provides a descriptive summary of all of the questions from
parts A and B in the HRM survey. The answers for each question are summarized using frequencies for the
entire sample (190 staff), and also separately by gazetted and non-gazetted officers. Also, the specific comments
written in by respondents are summarized for several of the questions in part B of the survey.

Section 3 provides a summary of some initial reliability and factor analyses that were conducted with the part B
questions, both within each subsection and across all 32 survey questions. This section also presents the results
for an overall index of the responses in part B, and provides some additional comparisons of the index results
by respondent characteristics.

The main purpose of this report is to provide a detailed descriptive overview of the survey questions with some
comparisons, rather than a detailed analysis of the results themselves. The main work related to interpretation
can be filled in later by the survey questionnaire designers.

Descriptive overview of HRM survey
This section summarizes all of the part A and B questions that are included on the HRM survey. As described
above, this is done for the entire sample (190 staff), and also separately by gazetted and non-gazetted officers.
Tests of significance are included to determine if the responses between gazetted/non-gazetted officers are
significantly different. For the 32 yes/no (or agree/disagree) questions in part B, the answers are summarized
using three responses: 1) “no/disagree,” 2) “yes/agree,” and 3) a combined category for “don’t know/multiple
answers/ didn’t answer.” Since these categories are not ordered, a simple chi-square test is used to determine
if the answers are significantly different between gazetted and non-gazetted staff. The p-values for these tests
are included below each question summary, with p<=0.05 considered significant (flagged by *). It should be
noted that the categorical responses preclude the calculation of standard deviations for individual questions as
part of the descriptive summary.

The comparisons are restricted to gazetted versus non-gazetted officers because this appears to be the main
strata incorporated in the survey. In section 3, some additional comparisons are incorporated, but given
the relatively small sample size—and lack of information on the sampling properties (i.e., how large is the
population, etc.)—some caution is required with the comparisons. This may be something that can be expanded
in later iterations of this report.

Finally, the survey also allowed respondents to add in comments for each question. In general, relatively few
additional comments or observations were added by the respondents. But there are some variables where more
comments were provided, so these individual variable comments are listed within the relevant subsection below.
147  J.H. Marshall, May 2006, unpublished memo, World Bank (summary data available upon request).


                                                                                                                  185
      Part A, background information
      Table A12 provides a summary of the background characteristic indicators that are included in part A of the
      survey. The results are presented as frequencies, meaning that each figure is a percentage of the total. For
      example, the question for age asked respondents to choose an age category, so the results show the percentage
      of respondents in each category. (The answers sum to 100 percent.)

      These are the main results for the part A questions:

              •	    All of the non-gazetted staff is female, compared with a 57:43 female to male percentage
                    breakdown among gazetted staff.
              •	    Overall, most respondents are in the 31-40 year range (55.3 percent), but the age profiles are very
                    different between gazetted and non-gazetted staff. About 80 percent of gazetted staff is older
                    than 40 years, compared with only 1 percent of non-gazetted.
              •	    The non-gazetted staff all report the same salary scale (MMK 180,000-190,000), whereas among
                    gazetted staff there is a wider range of salaries reported.
              •	    The experience results are similar to age, with a large concentration of high experience among
                    gazetted staff, and relatively low experience among non-gazetted.
              •	    Most of the gazetted staff is union or region level, whereas the non-gazetted staff is drawn mainly
                    from regional and township offices.
              •	    The only part-A variable that is not significantly different between gazetted and non-gazetted staff
                    is the 28.9 percent of survey respondents who reported working in a hardship zone.



      Table A12:       Summary of part A - respondent background characteristics

                                                                                                 Staff subsamples
       Survey questions                                                         All staff                    Non-
                                                                                              Gazetted
                                                                                                            gazetted
       Staff is gazetted (percent)                                                 47.4          ----          ----
       Male (percent)                                                              20.5          43.3          0.0
                                                                                               p=0.00*
       Age by category
         Less than 30 years                                                        6.3           1.1           11.0
         31-40 years                                                               55.3          19.0          88.0
         41-50 years                                                               17.4          35.6          1.0
         51-60 years                                                               21.1          44.4          0.0
         61 years or older                                                         0.0           0.0           0.0
                                                                                               p=0.00*




186
                                                                                                       Staff subsamples
 Survey questions                                                                    All staff                        Non-
                                                                                                    Gazetted
                                                                                                                     gazetted
  Salary level (in MMK)
    180,000-190,000                                                                    52.6             0.0            100.0
    250,000-270,000                                                                     4.2             8.9             0.0
    280,000-300,000                                                                    14.7            31.1             0.0
    310,000-330,000                                                                     6.3            13.3             0.0
    340,000-360,000                                                                    22.1            46.7             0.0
                                                                                                     p=0.00*
  Level of experience
    Less than 5 years                                                                   2.7             1.1             4.0
    5-10 years                                                                         12.8             5.7            19.0
    11-20 years                                                                        53.7            27.3            77.0
    21-30 years                                                                        23.4            50.0             0.0
    More than 30 years                                                                  7.5            15.9             0.0
                                                                                                     p=0.00*
  Level of employment
    Union level                                                                        36.9            75.9             3.0
    Regional/state level                                                               31.6            23.0            39.0
    District level                                                                      0.5             1.2             0.0
    Township level                                                                     31.0             0.0            58.0
                                                                                                     p=0.00*
  Hardship zone
  Work in a hardship zone?                                                             28.9            24.7            32.7
                                                                                                      p=0.23
  Sample
  Sample size                                                                           190             90              100

Source: HRM Survey 2015
Notes: Numbers are frequencies (percentages) of responses, and sum to 100% for each question by sample. P-values refer to tests of
significance (chi-square) comparing all responses within each question between gazetted and non-gazetted staff.
* P-value <=0.05




                                                                                                                                     187
      One potential complication for the survey analysis is the concentration of select characteristics within each of
      the gazetted and non-gazetted categories. For example, the only comparisons that can be made for salary level
      are within the gazetted staff category, since all non-gazetted staff receives the same salary level. The same is
      true for gender, since all non-gazetted staff is female.

      Table A13 summarizes the survey respondent breakdown by region. The results show that the gazetted staff is
      concentrated in Nay Pyi Taw, whereas the non-gazetted staff is more evenly divided across all of the regions.


      Table A13:       Breakdown of gazetted and non-gazetted samples by region

                          Region                       Non-gazetted staff       Gazetted staff              Total
       Ayeyarwaddy                                             17                      0                      17
       Bago                                                     7                      5                      12
       Chin                                                     2                      0                       2
       Kachin                                                   4                      0                       4
       Kayah                                                    0                      1                       1
       Kayin                                                    4                      0                       4
       Magway                                                   9                      2                      11
       Mandalay                                                11                      3                      14
       Mon                                                      5                      0                       5
       Nay Pyi Taw                                              5                      67                     72
       Rakhine                                                  4                      0                       4
       Sagaing                                                  6                      1                       7
       Shan                                                    14                      1                      15
       Tanintharyi                                              4                      0                       4
       Yangon                                                   8                      9                      17
       Total                                                   100                     89                    189




      Part B, survey responses
      Tables A14 through A20 summarize the responses for each of the seven part B sub-sections. The presentation
      strategy is the same as in A12, with an overall sample breakdown of the responses, followed by comparisons
      of gazetted and non-gazetted categories. Tests of significance are used to determine if the overall frequencies
      of responses (by question) are different between gazetted and non-gazetted staff. (Significant differences are
      flagged with an asterisk.) These results are not analyzed in detail here. Nevertheless, a handful of findings stand
      out across the seven tables.

                •	   For some questions, there are substantial proportions of respondents who did not answer, marked
                     multiple answers, or selected “don’t know.” The response rate by question is potentially useful,
                     especially if there are certain kinds of questions that respondents are less likely to answer. But the
                     missing answers do complicate certain aspects of the statistical analysis (discussed in section 3).


188
           •	   Overall, the respondents were generally positive about their working environments. The
                percentage of positive responses (“yes” or “agree”) was above 50 percent in 19 of the 32 part B
                survey questions.
           •	   However, the results are very different between staff categories. In general, the non-gazetted
                officers are more positive about their working experience and environment. More specifically,
                non-gazetted staff reported significantly higher satisfaction than their gazetted counterparts in 17
                of the 32 part B questions.
           •	   The survey areas, “Deployment and Retention” (section 3) and “Pay and Compensation” (section
                7), have the fewest significant differences between gazetted and non-gazetted staff.


Table A14:         Survey section 1 - establishment management and control

                                                                                                     Staff subsamples
 Survey questions                                                                 All staff
                                                                                                Gazetted       Non-gazetted
  S1Q1. My ministry/department has enough staff to carry out its
  functions effectively and efficiently.
     No                                                                              35.1           58.0              15.0
     Yes                                                                             58.5           36.4              78.0
     Don’t know/No answer/Multiple answers                                           6.4            5.7               7.0
                                                                                                     p=0.00*
  S1Q2. My ministry/department has a specialized human resource
  management/personnel unit with qualified staff who are technically
  competent to plan and manage human resource management matters.
     No                                                                              32.6           61.1              7.0
     Yes                                                                             59.5           37.8              79.0
     Don’t know/No answer/Multiple answers                                           7.9            1.1               14.0
                                                                                                     p=0.00*
  S1Q3. Job posts are created based on an analysis of the manpower
  needs of the respective department/division/section in my ministry.
     No                                                                              12.7           25.8              1.0
     Yes                                                                             81.5           70.8              91.0
     Don’t know/No answer/Multiple answers                                           5.8            3.4               8.0
                                                                                                     p=0.00*
  S1Q4. There are written job descriptions for all the staff positions in
  my ministry/department/section.
     No                                                                              7.9            15.6              1.0
     Yes                                                                             84.7           76.7              92.0
     Don’t know/No answer/Multiple answers                                           7.4            7.8               7.0
                                                                                                     p=0.00*
Source: HRM Survey 2015.
Notes: Numbers are frequencies (percentages) of responses, and sum to 100% for each question by sample. P-values refer to tests of
significance (chi-square) comparing all responses within each question between gazetted and non-gazetted staff.
* P-value <=0.05

                                                                                                                                     189
       Table A15:        Survey section 2 - recruitment and selection

                                                                                                             Staff subsamples
       Survey questions                                                                    All staff                        Non-
                                                                                                          Gazetted
                                                                                                                           gazetted
        S2Q1. The recruitment and selection system in Myanmar is successful in
        recruiting the best qualified people for its civil service.
           No                                                                                 29.3            46.6            14.0
           Yes                                                                                58.0            40.9            73.0
           Don’t know/No answer/Multiple answers                                              12.8            12.5            13.0
                                                                                                            p=0.00*
        S2Q2. The recruitment process provides equal opportunities for male
        and female job applicants.
           No                                                                                 15.9            14.6            17.0
           Yes                                                                                83.1            84.3            82.0
           Don’t know/No answer/Multiple answers                                              1.1             1.1             1.0
                                                                                                            p=0.09
        S2Q3. The recruitment process provides equal opportunities for job
        applicants from different ethnic groups/races.
           No                                                                                 6.5             9.0             4.0
           Yes                                                                                91.5            87.6            95.0
           Don’t know/No answer/Multiple answers                                              2.1             3.4             1.0
                                                                                                            p=0.19
        S2Q4. It is easy to attract qualified job seekers to apply for employment
        in the civil service of Myanmar.
           No                                                                                 30.5            46.7            16.0
           Yes                                                                                60.0            46.7            72.0
           Don’t know/No answer/Multiple answers                                              9.5             6.7             12.0
                                                                                                            p=0.00*

      Source: HRM Survey 2015.
      Notes: Numbers are frequencies (percentages) of responses, and sum to 100% for each question by sample. P-values refer to tests of
      significance (chi-square) comparing all responses within each question between gazetted and non-gazetted staff.
      * P-value <=0.05




190
 Table A16:        Survey section 3 - deployment and retention

                                                                                                       Staff subsamples
 Survey questions                                                                    All staff                        Non-
                                                                                                    Gazetted
                                                                                                                     gazetted
  S2Q1. Civil servants can choose where they want to be posted or
  deployed.
     No                                                                                 90.5            87.8            92.9
     Yes                                                                                7.9             11.1            5.1
     Don’t know/No answer/Multiple answers                                              1.6             1.1             2.0
                                                                                                      p=0.28
  S2Q2. The regional allowance (hardship allowance) is enough to attract
  and keep civil servants to work in poor and remote areas.
     No                                                                                 63.7            61.1            66.0
     Yes                                                                                21.6            23.3            20.0
     Don’t know/No answer/Multiple answers                                              14.7            15.6            14.0
                                                                                                      p=0.78
  S2Q3. There is a clear policy and criteria for the posting and deployment
  of the staff in each ministry/department.
     No                                                                                 23.7            36.7            12.0
     Yes                                                                                57.4            51.1            63.0
     Don’t know/No answer/Multiple answers                                              19.0            12.2            25.0
                                                                                                      p=0.00*
  S2Q4. The posting and deployment of staff is carried out in a fair and
  transparent manner.
     No                                                                                 39.7            56.2            25.0
     Yes                                                                                49.7            39.3            59.0
     Don’t know/No answer/Multiple answers                                              10.6            4.5             16.0
                                                                                                      p=0.00*

Source: HRM Survey 2015.
Notes: Numbers are frequencies (percentages) of responses, and sum to 100% for each question by sample. P-values refer to tests of
significance (chi-square) comparing all responses within each question between gazetted and non-gazetted staff.
* P-value <=0.05




                                                                                                                                     191
       Table A17:        Survey section 4 - performance appraisal

                                                                                                             Staff subsamples
       Survey questions                                                                    All staff                        Non-
                                                                                                          Gazetted
                                                                                                                           gazetted
        S4Q1. I am given feedback about my job performance by my supervisor
        on a regular basis (daily/weekly/monthly).
           No                                                                                 33.9            43.5            23.5
           Yes                                                                                63.4            50.0            75.5
           Don’t know/No answer/Multiple answers                                              2.7             4.6             1.0
                                                                                                            p=0.00*
        S4Q2. There is a formal system in my ministry/department for a staff ’s
        job performance to be monitored and appraised every year.
           No                                                                                 30.5            51.1            12.0
           Yes                                                                                64.7            43.3            84.0
           Don’t know/No answer/Multiple answers                                              4.7             5.6             4.0
                                                                                                            p=0.00*
        S4Q3. My supervisor discusses my performance appraisal report with
        me to provide feedback about my job performance.
           No                                                                                 67.7            67.4            68.0
           Yes                                                                                29.1            30.3            28.0
           Don’t know/No answer/Multiple answers                                              3.2             2.3             4.0
                                                                                                            p=0.76
        S4Q4. The performance appraisal system for promotion is fair and
        transparent.
           No                                                                                 36.5            56.2            19.0
           Yes                                                                                59.3            41.6            75.0
           Don’t know/No answer/Multiple answers                                              4.2             2.3             6.0
                                                                                                            p=0.00*

      Source: HRM Survey 2015.
      Notes: Numbers are frequencies (percentages) of responses, and sum to 100% for each question by sample. P-values refer to tests of
      significance (chi-square) comparing all responses within each question between gazetted and non-gazetted staff.
      * P-value <=0.05




192
 Table A18:        Survey section 5 - promotion

                                                                                                       Staff subsamples
 Survey questions                                                                    All staff                        Non-
                                                                                                    Gazetted
                                                                                                                     gazetted
  S4Q1. Rules and procedures are followed closely by the ministry/
  department in the promotion of the staff.
     No                                                                                 17.4            23.3            12.0
     Yes                                                                                75.3            68.9            81.0
     Don’t know/No answer/Multiple answers                                              7.4             7.8             7.0
                                                                                                      p=0.11
  S4Q2. The most qualified and competent person is promoted in the
  ministry/department
     No                                                                                 39.4            55.1            25.3
     Yes                                                                                55.9            39.3            70.7
     Don’t know/No answer/Multiple answers                                              4.8             5.6             4.0
                                                                                                      p=0.00*
  S4Q3. My ministry/department provides training and staff development
  programs to prepare the staff for promotion.
     No                                                                                 16.4            28.1            6.0
     Yes                                                                                80.4            67.4            92.0
     Don’t know/No answer/Multiple answers                                              3.2             4.5             2.0
                                                                                                      p=0.00*
  S4Q4. There is political consideration in the promotion process of civil
  servants.
     No                                                                                 45.8            58.9            34.0
     Yes                                                                                30.0            25.6            34.0
     Don’t know/No answer/Multiple answers                                              24.2            15.6            32.0
                                                                                                      p=0.00*

Source: HRM Survey 2015.
Notes: Numbers are frequencies (percentages) of responses, and sum to 100% for each question by sample. P-values refer to tests of
significance (chi-square) comparing all responses within each question between gazetted and non-gazetted staff.
* P-value <=0.05




                                                                                                                                     193
       Table A19:        Survey section 6 - learning and development

                                                                                                             Staff subsamples
       Survey questions                                                                    All staff                        Non-
                                                                                                          Gazetted
                                                                                                                           gazetted
        S4Q1. All civil servants are given equal access to learning and
        development opportunities.
           No                                                                                 22.8            34.8            12.0
           Yes                                                                                74.1            59.6            87.0
           Don’t know/No answer/Multiple answers                                              3.2             5.6             1.0
                                                                                                            p=0.00*
        S4Q2. My ministry/department has a training plan to develop the job
        competencies of all the staff on a short term and long term basis.
           No                                                                                 7.4             14.6            1.0
           Yes                                                                                87.3            80.9            93.0
           Don’t know/No answer/Multiple answers                                              5.3             4.5             6.0
                                                                                                            p=0.00*
        S4Q3. Training programs have been effective in improving job
        performance and public service delivery in the civil service.
           No                                                                                 10.5            18.9            3.0
           Yes                                                                                86.8            77.8            95.0
           Don’t know/No answer/Multiple answers                                              2.6             3.3             2.0
                                                                                                            p=0.00*
        S4Q4. There is sufficient budget and qualified staff to provide training
        and learning opportunities to all the civil servants.
           No                                                                                 58.7            62.2            55.6
           Yes                                                                                31.2            28.9            33.3
           Don’t know/No answer/Multiple answers                                              10.1            8.9             11.1
                                                                                                            p=0.64

      Source: HRM Survey 2015.
      Notes: Numbers are frequencies (percentages) of responses, and sum to 100% for each question by sample. P-values refer to tests of
      significance (chi-square) comparing all responses within each question between gazetted and non-gazetted staff.
      * P-value <=0.05




194
Table A20:   Survey section 7 - pay and compensation

                                                                                          Staff subsamples
Survey questions                                                            All staff                Non-
                                                                                        Gazetted
                                                                                                    gazetted
S7Q1. It is easy to understand how much compensation (monetary and
nonmonetary) is paid for different jobs in the civil service.
   No                                                                         40.5        52.2        30.0
   Yes                                                                        31.1        28.9        33.0
   Don’t know/No answer/Multiple answers                                      28.4        18.9        37.0
                                                                                        p=0.00*
S7Q2. The official compensation in the civil service (including monetary
and nonmonetary allowances) is sufficient to attract and retain qualified
and skilled people.
   No                                                                         65.8        75.7        57.0
   Yes                                                                        22.6        17.8        27.0
   Don’t know/No answer/Multiple answers                                      11.6        6.7         16.0
                                                                                        p=0.02*
S7Q3. The official earnings in the civil service (including monetary and
nonmonetary allowances) are sufficient to cover the basic living expenses
(accommodation and food) of a family.
   No                                                                         86.8        80.0        93.0
   Yes                                                                        11.6        17.8         6.0
   Don’t know/No answer/Multiple answers                                       1.6        2.2          1.0
                                                                                        p=0.03*
S7Q4. In addition to my civil service job, I regularly undertake/do other
paid work.
   No                                                                         86.1        81.6        90.0
   Yes                                                                        12.8        17.2         9.0
   Don’t know/No answer/Multiple answers                                       1.1        1.2          1.0
                                                                                         p=0.24
S7Q5. The compensation system in the civil service (including monetary
and nonmonetary allowances) is fair and equitable. Jobs that have similar
levels of responsibility are compensated equally.
   No                                                                         41.1        50.0        33.0
   Yes                                                                        32.1        28.9        35.0
   Don’t know/No answer/Multiple answers                                      26.8        21.1        32.0
                                                                                        p=0.05*




                                                                                                               195
                                                                                                             Staff subsamples
       Survey questions                                                                    All staff                       Non-
                                                                                                          Gazetted
                                                                                                                          gazetted
       S7Q6. Civil servants resign from their jobs because of insufficient
       income.
           No                                                                                48.2        45.7            50.5
           Yes                                                                               41.3        43.3            39.4
           Don’t know/No answer/Multiple answers                                             10.6        11.1            10.1
                                                                                                            p=0.79
       S7Q7. In the past 12 months, I have made serious efforts to find full-
       time work elsewhere, so that I can leave the civil service.
           No                                                                                88.4            86.7            90.0
           Yes                                                                                6.8               8.9             5.0
           Don’t know/No answer/Multiple answers                                              4.7               4.4             5.0
                                                                                                            p=0.57
       S7Q8. I would recommend to other people that they seek a job in the
       civil service.
           No                                                                                23.8            27.0            21.0
           Yes                                                                               73.0            67.4            78.0
           Don’t know/No answer/Multiple answers                                              3.2               5.6             1.0
                                                                                                            p=0.10

      Source: HRM Survey 2015.
      Notes: Numbers are frequencies (percentages) of responses, and sum to 100% for each question by sample. P-values refer to tests of
      significance (chi-square) comparing all responses within each question between gazetted and non-gazetted staff.
      * P-value <=0.05




196
Part B, open question (comment) responses
The respondents were free (in each question) to provide additional details in the form of comments. In
most cases, very few comments were provided. However, for a handful of variables, there were at least five
comments provided, and these comments may provide some additional useful detail for the analysis. They are
summarized in box A1, by the question where comment was made. If necessary, summaries of comments from
other questions can be provided, but few others were made.


Box A1:      Summaries of respondents’ comments on selected survey questions


   Comments on S1Q1 (“Ministry/Department has enough staff.”)
      •	   “It [staffing]is more than enough in some places, but not enough at all in some places.”
      •	   “It exceeds in some departments and some others don’t have enough.”
      •	   “Junior clerks are not enough.”
      •	   “Enough staff, but not qualified.”
      •	   “Staff is enough, but it needs to manage [to assign] the right person in the right place.”
      •	   “They are filling the free and missing positions.”
      •	   “There is only half the number of staff.”


   Comments on S3Q1 (“Civil servants can choose posting.”)
      •	   “Cannot choose. Currently, I have been transferred to the working group under the Ministry
           Department.”
      •	   “But, it is not certain to be assigned to that chosen place.”
      •	   “There is a voting system for posting and sometimes, they were transferred to the new posts for
           the requirements.”
      •	   “Have to go to assigned areas.”
      •	   “Can choose if the post is free. Prefer to post the civil servants with no retribution at their own
           local region.”


   Comments on S5Q2 (“The most qualified and competent persons are promoted.”)
      •	   “Direct supervisor's recommendation is only important.”
      •	   “Other factors of the Ministries are also essential.”
      •	   “There are some exceptions, such as promotion [going] to the one with the longest service years
           without [the] qualifications.”
      •	   “Sometimes yes, sometimes no.”
      •	   “75% is right. 25% is exception.”




                                                                                                                 197
         Comments on S6Q4 (“[There is] sufficient budget and staff to provide training to civil servants.”)
            •	   “There is support from UN, INGOs, and the Government’s budgets for the trainings.”
            •	   “Just average.”
            •	   “Have qualified staff, but no sufficient budget.”
            •	   “Not sufficient budget.”
            •	   “There are many qualified civil servants with money hardships.”


         Comments on S7Q3 (“Official earnings are sufficient for basic living expenses.”)
            •	   “Spend money with limits. But it is not enough for living expenses. Don’t have the personal house
                 (do not own yet) until today.”
            •	   “No. Can only afford to buy and eat the rice from the lowest price range.”
            •	   “Only cover for basic Food expenses.”
            •	   “Even though the State is supporting as much as they can, there are still necessities.”
            •	   “It is only enough for food, shelter, and clothing. Not enough for health care and children’s
                 education.”
            •	   “Not sufficient for the children.”
            •	   “Not sufficient for the whole family.”
            •	   “Not sufficient to cover basic living expenses”
            •	   “Goods prices are high and not enough income.”



         Comments on S7Q8 (“I would recommend to people to seek job in civil service.”)
            •	   “Even though a civil servant in life has to struggle with hardships, there a pension that can secure
                 the life after retirement. Have to be proud in society, such as among family, friends and relatives.
            •	   Therefore, we want to recommend to others though we don’t like [it] ourselves.”
            •	   “Encourage the people who are really interested to sacrifice for the public’s well beings without
                 having personal interests.”
            •	   “Don’t want to encourage at present.”
            •	   “Individual's choice is the main [thing].”
            •	   “Have a pension.”
            •	   “To get a secure life.”



      One interesting observation about the comments made on S7Q3 in figure A1 is that only two of them came
      from non-gazetted staff; all of the rest were by gazetted staff. Also, almost half of the comments from gazetted
      staff came from the staff members who report being in the highest salary range.




198
Statistical analysis
This section briefly summarizes the results from three additional analyses that were conducted using HRM
survey data. This includes reliability and factor analysis, and analysis of a summary index that was created using
all of the data in part B. These results are very preliminary and may be of limited use, although they can be
extended if needed.

Initial reliability and factor analysis
Reliability and factor analysis are commonly used with attitudinal data, such as the questions in part B. Since the
32 questions touch on multiple aspects of civil service, it is important to know whether or not these questions
appear to come from a single, general construct (or dimension), or if they are related to multiple dimensions.
Reliability measures (e.g., Cronbach’s alpha) provide a basic indication of how similar the questions are, with
higher values (over 0.90) indicating high degrees of similarity (or reliability) in the questions. Factor analysis is
a more complicated activity that gives loadings (or weights) to individual questions and allows for the questions
to load onto more than one factor (or dimension).

Both of these analyses (reliability and factor) are related to the concept of dimensionality. For example, it may
be that all of the questions in part B basically measure a general dimension among civil servant staff, which could
be called “civil servant job satisfaction,” for example. However, it is possible that some of these questions—or
even entire sections of questions—are measuring different dimensions. There is also the possibility that some
of the questions are poorly worded or the respondents did not understand them. Reliability and factor analysis
can be useful for flagging questions that appear to be functioning differently than the other questions.

Unfortunately, it is not possible to explore this issue of dimensionality across the entire part B survey for two
reasons. First, there are a substantial number of “don’t know/multiple answer/didn’t answer” responses to the
32 questions, which were treated as missing values in a combined factor analysis across all questions. As a result,
the factor and reliability analyses can only be done for a very small subset of respondents who chose “yes-no”
answers to all (or almost all) of the questions. Second, the polychoric factor method—which is appropriate for
dichotomous responses—does not properly converge because of the relatively high number of questions for
a relatively small number of cases. Convergence is only achieved when dropping multiple questions, but this
limits the utility of the analysis.

As a preliminary step, the reliability and factor analyses were applied to each of the seven blocks of questions
in part B. (The results are presented in subsection 3.3, “Reliability and factor analysis.”) The main finding from
this initial analysis is that no major problems were found with any of the survey questions. However, the details
from this analysis are not particularly important, so they are not presented in detail. These preliminary steps
do, at a minimum, provide some initial results that can perhaps be added to in future iterations of this study.

Overall index
Because of the complications of incorporating factor analysis to create a measure (or measures) for the responses
in part B, a simple index was instead created. The index measures the percentage of “yes/agree” answers
across all 32 part B questions.148 This is done for respondents who have fewer than five missing answers, which
results in a sample of 162 respondents. This index can be treated as a rough measure of civil servant worker
148  Before this index was created, three variables were recoded so that the “yes/agree” response reflects a positive attribute of the job.
For example, the variable “looking for other job” (in section 7 of the survey) is now coded 1 (“yes/agree”) meaning that the respondent
is not looking for another job. This recoding is not critical for the construction of the index, but it does insure that all 32 questions are
coded in the “same direction.”


                                                                                                                                            199
      satisfaction. For example, a respondent with an index score of 90 indicated a positive response in 90 percent
      of the questions, whereas a respondent with an index score of 30 only answered positively in 30 percent of
      the questions. Unlike factor analysis, the simple index gives all questions the same importance. (There are no
      loadings or weights.)

      Figure A1 shows the histogram for the index for the final sample of 158 respondents. The distribution is
      skewed to the right, meaning that there are more positive responses than negative ones. This is consistent
      with the descriptive summary provided in section 2. However, it is important to note that there is a significant
      amount of variation in the index score across the 162 respondents.


      Figure A1:           Histogram summary of civil servant work environment index
                           .025
                           .02
                           .015
                 Density
                           .01
                           .005
                           0




                                      20             40            60              80             100
                                                                  index




      Figure A2 compares some of the index results across different categories of respondents. As noted above,
      some caution is required when making comparisons across the sample categories. The results show that non-
      gazetted respondents have an overall index score of 70.7, compared with just 52.9 for gazetted officers. The
      overall sample average is 61.8 (with a standard deviation of 19.0). Focusing just on gazetted staff, the officers
      with the highest index scores are in the middle salary ranges, whereas gazetted staff in the lowest (250,000-
      270,000) and highest (340,000-360,000) have lower satisfaction levels. These results are somewhat counter-
      intuitive: comparisons cannot be made by salary with non-gazetted staff because all of them are in the 180,000-
      190,000 category.




200
Figure A2:      Comparison of overall index score by respondent characteristic




Reliability and factor analysis
The reliability and factor analyses are incorporated separately within each of the seven sections of part B. The
results are displayed in tables A21-A27. For each question within the seven survey sections, the results are first
summarized in terms of “yes/agree” versus “no/disagree.” This ignores the “don’t know/multiple answer/
didn’t answer” responses, which means leaving out a large number of respondents for some of the survey
questions. An overall alpha statistic is reported within each of the question blocks (seven in all). Higher values
of alpha mean that the questions are related to the same underlying dimension. Since the subsections include
relatively few questions (usually four), the alpha values are not high by conventional standards (always below
0.70). The alpha statistic is also reported for each of the individual questions within each subsection, but this
has a different interpretation than the overall alpha. The individual alphas refer to the value of the overall
alpha if this specific question is removed. When the individual alpha for a specific question is much lower than
the overall alpha average, it means that the individual question is strongly related to the dimension that these
questions appear to be measuring.

Next to the alpha statistics for each individual question (within each subsection), there also appear factor
loadings from an initial factor analysis. Higher loadings suggest that the individual question is a more important
element of the dimension that is being measured in the block of questions. This additional analysis concludes
with a comparison of the factor scores between gazetted and non-gazetted staff, based on the questions within
each individual subsection. The factor is obtained using a polychoric factor analysis function due to the reliance
on 0-1 dichotomous variales.




                                                                                                                 201
      Table A21:     Survey section 1 - establishment management and control, item summary

                                                           Staff subsamples
                                                                                               Factor
             Survey questions             All staff                     Non-          Alpha
                                                        Gazetted                              loading
                                                                       gazetted
                                                                   Percentage “yes”
      S1Q1                                  62.5           38.6          83.9          0.61    0.22
      S1Q2                                  64.6           38.2          91.9          0.48    0.23
      S1Q3                                  86.5           73.3          98.9          0.60    0.10
      S1Q4                                  91.5           83.1          98.9          0.65    0.07
      Overall alpha (for block)              ----          ----           ----         0.66     ----
      Factor score (for block)              -0.19         -0.79          0.46          ----     ----



      Table A22:     Survey section 2 - recruitment and selection, item summary

                                                           Staff subsamples
                                                                                               Factor
             Survey questions             All staff                     Non-          Alpha
                                                        Gazetted                              loading
                                                                       gazetted
                                                                   Percentage “yes”
      S2Q1                                  66.4           46.8           83.9         0.50    0.23
      S2Q2                                  84.0           85.2          82.8          0.62    0.11
      S2Q3                                  93.5           90.7          96.0          0.62    0.06
      S2Q4                                  66.3           50.0           81.8         0.47    0.22
      Overall alpha (for block)              ----          ----           ----         0.63     ----
      Factor score (for block)              -0.19         -0.49           0.09         ----     ----


      Table A23:     Survey section 3 - deployment and retention, item summary

                                                           Staff subsamples
                                                                                               Factor
             Survey questions             All staff                     Non-          Alpha
                                                        Gazetted                              loading
                                                                       gazetted
                                                                   Percentage “yes”
      S2Q1                                   8.1           11.2           5.2          0.58    0.35
      S2Q2                                  25.3           27.6          23.3          0.57    0.29
      S2Q3                                  25.8           58.2           84.0         0.32    0.22
      S2Q4                                  55.6           41.1           70.2         0.24    0.30
      Overall alpha (for block)              ----          ----           ----         0.53     ----
      Factor score (for block)              -0.57         -0.80           -0.31        ----     ----



202
Table A24:     Survey section 4 - performance appraisal, item summary

                                                     Staff subsamples
                                                                                        Factor
       Survey questions            All staff                     Non-          Alpha
                                                 Gazetted                              loading
                                                                gazetted
                                                            Percentage “yes”
S4Q1                                 65.2           52.4           76.3         0.60    0.26
S4Q2                                 68.0           45.9           87.5         0.58    0.25
S4Q3                                 30.1           31.0          29.2          0.68    0.44
S4Q4                                 61.9           42.5           79.8         0.62    0.27
Overall alpha (for block)             ----          ----           ----         0.69     ----
Factor score (for block)             -0.19          -0.65          0.23         ----     ----



Table A25:     Survey section 5 - promotion, item summary

                                                     Staff subsamples
                                                                                        Factor
       Survey questions            All staff                     Non-          Alpha
                                                 Gazetted                              loading
                                                                gazetted
                                                            Percentage “yes”
S5Q1                                 81.3           74.7          87.1          0.32    0.13
S5Q2                                 58.7           41.7          73.7          0.23    0.30
S5Q3                                 83.1           70.6          93.9          0.33    0.12
S5Q4                                 39.6           30.2          50.0          0.59    -0.07
Overall alpha (for block)             ----          ----           ----         0.46     ----
Factor score (for block)             -0.23          -0.52          0.11         ----     ----


Table A26:     Survey section 6 - learning and development, item summary

                                                     Staff subsamples
                                                                                        Factor
       Survey questions            All staff                     Non-          Alpha
                                                 Gazetted                              loading
                                                                gazetted
                                                            Percentage “yes”
S6Q1                                 76.5           63.1           87.9         0.41    0.19
S6Q2                                 92.2           84.7           98.9         0.48    0.07
S6Q3                                 89.2           80.5           96.9         0.46    0.10
S6Q4                                 34.7           31.7          37.5          0.65    0.31
Overall alpha (for block)             ----          ----           ----         0.57     ----
Factor score (for block)             -0.15          -0.47          0.14         ----     ----



                                                                                                 203
      Table A27:      Survey section 7 - pay and compensation, item summary

                                                           Staff subsamples
                                                                                              Factor
             Survey questions             All staff                    Non-          Alpha
                                                       Gazetted                              loading
                                                                      gazetted
                                                                  Percentage “yes”
      S7Q1                                  43.4          35.6           52.4         0.45     0.27
      S7Q2                                  25.6          19.0           32.1         0.45     0.28
      S7Q3                                  11.8          18.2            6.1         0.50     0.17
      S7Q4                                  13.0          17.4           9.1          0.51     ----
      S7Q5                                  43.9          36.6          51.5          0.39     0.29
      S7Q6                                  46.2          48.8          43.8          0.48    -0.08
      S7Q7                                   7.2           9.3           5.3          0.49     ----
      S7Q8                                  75.4          71.4          78.8          0.46     0.10
      Overall alpha (for block)              ----         ----           ----         0.50     ----
      Factor score (for block)              -0.92         -1.10         -0.69         ----     ----




204
      Annex 13 Analysis of Civil Service Job Descriptions (from Ministry of Education)

      Table 28:     Analysis of civil service job descriptions

                                                                                                 Job description specifies: (1 = yes, 0 = no)        No. of          Job
      No.           Job title (in Myanmar)                    Job title (in English)                       Respon-                     Reporting    features    descriptions
                                                                                              Purpose                   Activities                  covered    (no. of pages)
                                                                                                           sibilities                arrangements
                                                       Specified in no. of job descriptions     58            82            80             2
       1    ညြန္ၾကားေရးမွဴးခ်ဳပ္                       Director general                         1              1            1              0           3           0.75

       2    ဒုတိယညြန္ၾကားေရးမွဴးခ်ဳပ္ (စီမံကိန္း)      Deputy director general—planning         1              1            1              0           3           0.75

       3    ဒုတိယညြန္ၾကားေရးမွဴးခ်ဳပ္ (ေလ့က်င့္ေရး)    Deputy director general—practice         1              1            1              0           3           0.75

       4    ဒုတိယညြန္ၾကားေရးမွဴးခ်ဳပ္ (သုေတသန)         Deputy director general—research         1              1            1              0           3           0.75
                                                       Deputy director general—admin,
       5    ဒုတိယညြန္ၾကားေရးမွဴးခ်ဳပ္ (စီမံ၊ ဘ႑ာ)                                               1              1            1              0           3           0.75
                                                       finance
       6    ညြန္ၾကားေရးမွဴး (စီမံကိန္း)                Director—planning                        1              1            1              0           3           0.75

            ညြန္ၾကားေရးမွဴး (စာရင္းအင္းႏွင့္
       7                                               Director—statistics and information      0              1            1              0           2           0.75
            သတင္းအခ်က္အလက္)

       8    ညြန္ၾကားေရးမွဴး (ေလ့က်င့္ေရး)              Director—practice                        1              1            1              0           3            1

       9    ညြန္ၾကားေရးမွဴး (သင္ရိုး)                  Director—curriculum                      1              1            1              0           3            1

       10   ညြန္ၾကားေရးမွဴး (သုေတသန)                   Director—research                        1              1            1              0           3            1

            ညြန္ၾကားေရးမွဴး (ႏိုင္ငံတကာဆက္ဆံေရးႏွင့္   Director—international relations and
       11                                                                                       1              1            1              0           3           0.75
            ပညာသင္ေရးရာ)                               study abroad

       12   ညြန္ၾကားေရးမွဴး (စီမံ)                     Director—administration                  1              1            1              0           3            1

       13   ညြန္ၾကားေရးမွဴး (ဘ႑ာ)                      Director—finance                         0              1            1              0           2            1

       14   ဒုတိယညြန္ၾကားေရးမွဴး (စီမံကိန္း)           Deputy director—planning                 1              1            1              0           3            1
205
206


                                                                                                 Job description specifies: (1 = yes, 0 = no)        No. of          Job
      No.             Job title (in Myanmar)                  Job title (in English)                       Respon-                     Reporting    features    descriptions
                                                                                              Purpose                   Activities                  covered    (no. of pages)
                                                                                                           sibilities                arrangements

            ဒုတိယညြန္ၾကားေရးမွဴး (စာရင္းအင္းႏွင့္     Deputy director—statistics and
      15                                                                                        0              1            1              0           2            1
            သတင္းအခ်က္အလက္)                           information

      16    ဒုတိယညြန္ၾကားေရးမွဴး (ေလ့က်င့္ေရး)        Deputy director—practice                  1              1            1              0           3            1

      17    ဒုတိယညြန္ၾကားေရးမွဴး (သင္ရိုး)            Deputy director—curriculum                1              1            1              0           3           0.75

      18    ဒုတိယညြန္ၾကားေရးမွဴး (သုေတသန)             Deputy director—research                  1              1            1              0           3            1

            ဒုတိယညြန္ၾကားေရးမွဴး                      Deputy director—international
      19                                                                                        0              1            1              0           2            1
            (ႏိုင္ငံတကာဆက္ဆံေရးႏွင့္ ပညာသင္ေရးရာ)     relations and study abroad

      20    ဒုတိယညြန္ၾကားေရးမွဴး (စီမံ)               Deputy director—administration            1              1            1              0           3           1.75

      21    ဒုတိယညြန္ၾကားေရးမွဴး (ဘ႑ာ)                Deputy director—finance                   1              1            1              0           3            1

      22    လ/ထညြန္ၾကားေရးမွဴး (စီမံကိန္း)            Assistant director—planning               1              1            1              0           3            1

            လ/ထညြန္ၾကားေရးမွဴး (လူ႕စြမ္းအားရင္းျမစ္   Assistant director—human resource
      23                                                                                        1              1            1              0           3           1.25
            ဖြျဖဳ
              ႔ ံ းေရး)
                   ိ                                  development

            လ/ထညြန္ၾကားေရးမွဴး                        Assistant director—monitoring and
      24                                                                                        1              1            1              0           3            1
            (ေလ့လာၾကီးၾကပ္အကဲျဖတ္)                    evaluation

      25    လ/ထညြန္ၾကားေရးမွဴး (စာရင္းအင္း)           Assistant director—statistics             0              1            1              0           2            1

            လ/ထညြန္ၾကားေရးမွဴး
      26                                              Assistant director—information            0              1            1              0           2            1
            (သတင္းအခ်က္အလက္)

      27    လ/ထညြန္ၾကားေရးမွဴး (၀ိဇၨာ)                Assistant director—arts                   1              1            1              0           3            1

      28    လ/ထညြန္ၾကားေရးမွဴး (သိပ)
                                   ၸံ                 Assistant director—science                1              1            1              0           3            1
                                                      Assistant director—curriculum
      29    လ/ထညြန္ၾကားေရးမွဴး (သင္ရိုးအကဲျဖတ္)                                                 1              1            1              1           4           0.75
                                                      evaluation

            လ/ထညြန္ၾကားေရးမွဴး                        Assistant director—in-service teacher
      30                                                                                        1              1            1              0           3           0.75
            (လုပ္ငန္းခြင္ဆရာအတတ္သင္တန္း)              training
                                                                                                        Job description specifies: (1 = yes, 0 = no)        No. of          Job
      No.            Job title (in Myanmar)                           Job title (in English)                      Respon-                     Reporting    features    descriptions
                                                                                                     Purpose                   Activities                  covered    (no. of pages)
                                                                                                                  sibilities                arrangements

            လ/ထညြန္ၾကားေရးမွဴး (လုပ္ငန္းခြင္ပညာေရး            Assistant director—in-service
      31                                                                                               1              1            1              0           3           0.75
            ၀န္ထမ္းမ်ားသင္တန္း)                               education staff training

            လ/ထညြန္ၾကားေရးမွဴး                                Assistant director—international
      32                                                                                               1              1            1              0           3           0.75
            (ႏိုင္ငံတကာဆက္ဆံေရး)                              relations

      33    လ/ထညြန္ၾကားေရးမွဴး (ပညာသင္ေရးရာ)                  Assistant director—study abroad          0              1            1              0           2            0.5
                                                              Assistant director—research, basic
      34    လ/ထညြန္ၾကားေရးမွဴး (သုေတသန) (အေျခခံ)                                                       1              1            1              0           3           1.25
                                                              education

            လ/ထညြန္ၾကားေရးမွဴး (သုေတသန)                       Assistant director—research, higher
      35                                                                                               1              1            1              0           3           1.25
            (အဆင့္ျမင့္/ ဆရာအတတ္ပညာ)                          education, teacher training college

            လ/ထညြန္ၾကားေရးမွဴး (သုေတသန) (TVET/                Assistant director—research, TVET/
      36                                                                                               1              1            1              0           3           1.25
            NFE)                                              NFE

      37    လ/ထညြန္ၾကားေရးမွဴး (စီမံ)                         Assistant director—administration        0              1            1              0           2            0.5

      38    လ/ထညြန္ၾကားေရးမွဴး (ဘ႑ာ)                          Assistant director—finance               1              1            1              0           3            1

      39    ဦးစီးအရာရိွ (စီမံကိန္း) (၄ ဦး)                  Staff officer—planning (4 persons)       1              1            1              0           3            1
                                                              Staff officer-human resource
      40    ဦးစီးအရာရိွ (HR စီမံကိန္း)(၄ ဦး)                                                         1              1            1              0           3            1.5
                                                              planning (4 persons)

            ဦးစီးအရာရိွ (ေလ့လာၾကီးၾကပ္အကဲျဖတ္) (၄            Staff officer—monitoring and
      41                                                                                               1              1            1              0           3            1
            ဦး)                                              evaluation (4 persons)

      42    ဦးစီးအရာရိွ (စာရင္းအင္း) (၄ ဦး)                 Staff officer—statistics (4 persons)     0              1            1              0           2            1
                                                              Staff officer—information (4
      43    ဦးစီးအရာရိွ (သတင္းအခ်က္အလက္) (၄ ဦး)                                                      0              1            1              0           2            1.5
                                                              persons)
      44    ဦးစီးအရာရိွ (ဘာသာစကား)                           Staff officer—language                   1              1            1              0           3           0.75
                                                              Staff officer—moral and civics,
      45    ဦးစီးအရာရိွ (စာရိတၲႏွင့္ ျပည္သူ႔နီတိ၊ သမိုင္း)                                            1              1            1              0           3           0.75
                                                              history
207
208


                                                                                                      Job description specifies: (1 = yes, 0 = no)        No. of          Job
      No.             Job title (in Myanmar)                      Job title (in English)                        Respon-                     Reporting    features    descriptions
                                                                                                   Purpose                   Activities                  covered    (no. of pages)
                                                                                                                sibilities                arrangements

      46    ဦးစီးအရာရိွ (ပထ၀ီ၀င္၊ စိုက္ပ်ဳးေရး)
                                           ိ              Staff officer—geography, agriculture       1              1            1              0           3           0.75

            ဦးစီးအရာရိွ (သူငယ္တန္း၊ ေဘာဂေဗဒ၊             Staff officer—kindergarten,
      47                                                                                             1              1            1              0           3           0.75
            အိမ္တြင္းစီးပြား)                             economics, home economics

      48    ဦးစီးအရာရိွ (သခ်ၤာ၊ ရူပေဗဒ၊ ICT)             Staff officer—math, physics, ICT           1              1            1              0           3           0.75
                                                          Staff officer—science, chemistry,
      49    ဦးစီးအရာရိွ (သိပံၸ၊ ဓါတုေဗဒ၊ ဇီ၀ေဗဒ)                                                    1              1            1              0           3           0.75
                                                          biology
                                                          Staff officer—physical education, life
      50    ဦးစီးအရာရိွ (ကာယ၊ ဘ၀တြက္တာ)                                                             1              1            1              0           3           0.75
                                                          skills
      51    ဦးစီးအရာရိွ (ပန္းခ်၊ ီ ဂီတ)                  Staff officer—arts, music                  1              1            1              0           3           0.75
                                                          Staff officer—curriculum evaluation
      52    ဦးစီးအရာရိွ (သင္ရိုးအကဲျဖတ္) (၂ ဦး)                                                    1              1            1              1           4           0.75
                                                          (2 persons)

            ဦးစီးအရာရိွ (ေလ့က်င့္ေရး) (လုပ္ငန္းခြင္ဆရာ   Staff officer—practice, in-service
      53                                                                                             1              1            1              0           3           0.75
            အတတ္သင္တန္း) (၂ ဦး)                          teacher training (2 persons)

            ဦးစီးအရာရိွ (ေလ့က်င့္ေရး)
                                                          Staff officer—practice, in-service
      54    (လုပ္ငန္းခြင္ပညာေရး ၀န္ထမ္းမ်ားသင္တန္း)                                                  1              1            1              0           3           0.75
                                                          education staff training (2 persons)
            (၂ ဦး)

                                                          Staff officer—research, basic
      55    ဦးစီးအရာရိွ (သုေတသန) (အေျခခံ) (၄ ဦး)                                                   1              1            1              0           3            1
                                                          education (4 persons)
                                                          Staff officer—research, higher
            ဦးစီးအရာရိွ (သုေတသန) (အဆင့္ျမင့္/
      56                                                  education, teacher training college (4     1              1            1              0           3            1.5
            ဆရာအတတ္ပညာ) (၄ ဦး)
                                                          persons)
                                                          Staff officer—research, TVET/NFE
      57    ဦးစီးအရာရိွ (သုေတသန) (TVET/NFE) (၄ ဦး)                                                 1              1            1              0           3           1.25
                                                          (4 persons)

            ဦးစီးအရာရိွ (ႏိုင္ငံတကာဆက္ဆံေရး)/            Staff officer—international relations;
      58                                                                                             1              1            1              0           3           0.75
            ဦးစီးအရာရိွ (ပညာ/က်န္းမာ)                    staff officer—education/health
                                                                                                       Job description specifies: (1 = yes, 0 = no)        No. of          Job
      No.             Job title (in Myanmar)                      Job title (in English)                         Respon-                     Reporting    features    descriptions
                                                                                                    Purpose                   Activities                  covered    (no. of pages)
                                                                                                                 sibilities                arrangements

      59    ဦးစီးအရာရိွ (ပညာသင္ေရးရာ) (၂ ဦး)            Staff officer-study aboard (2 persons)      0              1            1              0           2            0.5
                                                          Staff officer—administration (2
      60    ဦးစီးအရာရိွ (စီမံ) (၂ ဦး)                                                               0              1            1              0           2            0.5
                                                          persons)

            ဦးစီးအရာရိွ (ဘ႑ာ) (၁ ဦး) ဦးစီးအရာရိွ       Staff officer—finance; staff officer-
      61                                                                                              1              1            1              0           3            1
            (ေငြစာရင္း) (၁ ဦး)                           budget (1 person each)
                                                          Staff officer—director general’s office
      62    ဦးစီးအရာရိွ (ညႊန္ခ်ဳပ္ရံုးအဖြ႕)ဲ                                                         0              1            0              0           1           0.25
                                                          team
                                                          Deputy staff head—planning (8
      63    ဒုတိယဦးစီးမွဴး (စီမံကိန္း) (၈ ဦး)                                                       1              1            1              0           3            1
                                                          persons)
                                                          Deputy staff head—human resource
      64    ဒုတိယဦးစီးမွဴး (HR စီမံကိန္း) (၈ ဦး)                                                    1              1            1              0           3            1
                                                          planning (8 persons)

            ဒုတိယဦးစီးမွဴး (ေလ့လာၾကီးၾကပ္ အကဲျဖတ္)       Deputy staff head—monitoring and
      65                                                                                              1              1            1              0           3            1
            (၈ ဦး)                                       evaluation (8 persons)
                                                          Deputy staff head—statistics (8
      66    ဒုတိယဦးစီးမွဴး (စာရင္းအင္း) (၈ ဦး)                                                      0              1            1              0           2            1
                                                          persons)

            ဒုတိယဦးစီးမွဴး (ေလ့က်င့္ေရး) (လုပ္ငန္းခြင္   Deputy staff head—practice, in-
      67                                                                                              1              1            1              0           3            1
            ဆရာအတတ္သင္တန္း) (၄ ဦး)                       service teacher training (4 persons)
                                                          Deputy staff head—practice, in-
            ဒုတိယဦးစီးမွဴး (ေလ့က်င့္ေရး) (လုပ္ငန္းခြင္
      68                                                  service education staff training (4         1              1            1              0           3           0.75
            ပညာေရး၀န္ထမ္းမ်ားသင္တန္း) (၄ ဦး)
                                                          persons)
                                                          Deputy staff head—curriculum (8
      69    ဒုတိယဦးစီးမွဴး (သင္ရိုး) (၈ ဦး)                                                         1              1            1              0           3           0.75
                                                          persons)
                                                          Deputy staff head—curriculum
      70    ဒုတိယဦးစီးမွဴး (သင္ရိုးအကဲျဖတ္) (၅ ဦး)                                                  0              1            1              0           2           0.75
                                                          evaluation (5 persons)
209
210


                                                                                                   Job description specifies: (1 = yes, 0 = no)        No. of          Job
      No.            Job title (in Myanmar)                     Job title (in English)                       Respon-                     Reporting    features    descriptions
                                                                                                Purpose                   Activities                  covered    (no. of pages)
                                                                                                             sibilities                arrangements
                                                        Deputy staff head—research (36
      71    ဒုတိယဦးစီးမွဴး (သုေတသန) (၃၆ ဦး)                                                     1              1            1              0           3            1
                                                        persons)

            ဒုတိယဦးစီးမွဴး (ႏိုင္ငံတကာ ဆက္ဆံေရး) (၂    Deputy staff head—international
      72                                                                                          1              1            1              0           3           0.75
            ဦး)                                        relations (2 persons)
                                                        Deputy staff head—study abroad (2
      73    ဒုတိယဦးစီးမွဴး (ပညာသင္ေရးရာ) (၂ ဦး)                                                 0              1            1              0           2            0.5
                                                        persons)
      74    ကြန္ျပဴတာလုပ္ေဆာင္ေရးမွဴး (၇ ဦး)           Chief computer officer (7 persons)        0              1            1              0           2            1
                                                        Deputy staff head—administration;
      75    ဒုတိယဦးစီးမွဴး (စီမံ)/ အင္ဂ်င္နီယာ-၂                                                 1              1            1              0           3            0.5
                                                        engineer2
      76    စာရင္းကိုင္-၂/ ေငြကိုင္-၂                   Accountant2; cashier2 (1 person each)     0              1            1              0           2            0.5
                                                        Deputy staff head—director general’s
      77    ဒုတိယဦးစီးမွဴး (ညႊန္ခ်ဳပ္ရံုးအဖြ႕)ဲ                                                  0              1            1              0           2           0.25
                                                        office team

            သင္ရိုးကၽြမ္းက်င္-၃/ သင္ရိုးကၽြမ္းက်င္-၄    Curriculum expert3; curriculum
      78                                                                                          0              1            1              0           2           0.25
            (၁၃/၁၃=၂၆) ဦး                              expert4 (13/13 persons)

            လ/ထ ကြန္မွဴး/ အၾကီးတန္းစာေရး/               Assistant chief computer officer;
      79    အငယ္တန္းစာေရး (ကြန္ျပဴတာ)                   senior clerk-computer; junior clerk-      0              1            1              0           2           0.25
            (၂၂/၃၃/၄၂/၄) ဦး                            computer (22/33/42/4 persons)

            စာရင္းကိုင္-၃/ ေငြကိုင္-၃/ စာရင္းကိုင္-၄/   Accountant3; cashier3; accountant4;
      80                                                                                          0              1            1              0           2           0.25
            ေငြကိုင္-၄ (၁ဦးစီ/ စုစုေပါင္း ၄ ဦး)       cashier4 1 person each

      81    ယာဥ္ေမာင္း-၅ (၂၅ ဦး)                       Driver5 (25 persons)                      0              1            0              0           1            0.1

            ရံုးအကူ/ သန္႔ရွင္းေရး/ အေစာင့္/             Office helper; cleaner; guard; water
      82                                                                                          0              1            1              0           2            0.1
            ေရစက္ေမာင္း (၁၃ ဦး/ ၈ ဦး/ ၄ ဦး/ ၁ ဦး)   pump operator (13/8/4/1 persons)
Annex 14 	Sample Vacancy Announcement

Figure A3:        Sample vacancy announcement




Source: Union Civil Service Board.


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