90177 PART OF THE LEADERSHIP FOR RESULTS PROGRAM Reforming Civil Service in Sierra Leone Through Collective Leadership OVERVIEW tated discussions with these teams and the Leadership Improved capacity of the civil service in Sierra Leone is Team for the civil service reform agenda, in order to critical to deliver services for citizens. The government review progress and conduct problem-solving that will is tackling challenges of poor performance through address implementation challenges. a flagship Public Sector Reform Program (Improving Due to these efforts, progress has been made Productivity through Management and Pay Reforms), in several areas: introduction of performance man- a part of which involves reform of the civil service. agement with new guidelines and appraisal forms; The World Bank is supporting the government on this recruitment and human resource planning to better civil service reform through a lending project on Pay deliver services to citizens; payroll integrity to improve and Performance. The project targets changes in three financial efficiency of the government wage bill; and areas: (1) competitiveness in the pay of civil servants; improved communications to citizens on civil service (2) performance management and accountability of improvements, including a website to show progress, civil servants; and (3) recruiting and staffing to fill key local forums and radio discussions. positions. To generate evidence of the early and evolving out- Championing the project is a Leadership Team of comes—and milestones and outputs— achieved, their senior officials from key implementing agencies with significance and how the local stakeholders contrib- a commitment to foster a new culture of performance uted, a customized outcome harvesting tool was used and results. The World Bank Leadership Practice is to identify and formulate outcomes. Visual maps pres- supporting a collaborative leadership process to ent the sequence of outcomes achieved by the actors advance the Pay and Performance project results. They involved—how the outcomes built on each other over provided Rapid Results Approach (RRA) coaching to time to form multi-actor, institutional processes for approximately five inter-agency implementation teams change to address the development goal. Outcome to achieve the indicators set by the project, and facili- stories highlight key areas for results. 1 Figure 1. Theory of Change The change strategy map shows how change is happening to advance progress toward the goal—the development problems addressed, change agents producing the changes, outcome areas, and supporting activities by the Leadership Team and key implementers. BACKGROUND neglect. Incentives to perform and to reform are, During the civil war from 1991 until 2001, and in the therefore, also low. years after, the public sector in Sierra Leone suffered While the responsibility for public service reform is progressive depletion of skilled manpower in the fragmented in many countries, in Sierra Leone the frag- middle- and upper-level cadre of professional and mentation is immense. This exacerbates the challenge technical staff. Initial attempts at staffing the “missing for “collective action” in a government characterized middle” suggest that while the talent pool in Sierra by weak coordination and poor information sharing. Leone‘s labor market is limited, it is possible to The government acknowledged that it must rebuild find suitably qualified candidates with the right pay its civil service if it is to achieve its objectives for service incentives. However, the pay incentives are lacking— delivery and development of infrastructure from its low remuneration appears to be one of the major agenda for the next Poverty Reduction Strategy, the reasons why Sierra Leone’s civil service has not been Agenda for Prosperity. The Pay and Performance able to attract technical staff back from the private project will benefit civil servants by improving sector, and back to the country that were lost during internal equity and competitiveness of pay through the civil war when many left Sierra Leone. Pay levels an improved recruitment selection and performance have deteriorated so far that the lack of extrinsic appraisal system. This, in turn, will benefit the people rewards overwhelms any intrinsic factors derived from of Sierra Leone by providing them with a more the work itself. Sierra Leone‘s civil servants are thus productive and better performing government and, often de-motivated after decades of government over time, better services. 2 Figure 2. Results Chain for Impact Toward Goal Outcomes were analyzed and classified according to their type of change, then placed along a results chain to identify how the progression from inputs to impact is contributing to higher-level results over time. During the stages of project formulation with the • Convening support for key actors through periodi- World Bank, the operating environment in the country cally facilitating leadership level platforms for col- was considered, including Public Financial Manage- laboration, problem-solving, reinforcing alignment ment initiatives, decentralization work, and public with priorities, and learning iteratively from imple- sector reform initiatives more broadly. The Project was mentation; and assessed as being risky by the World Bank and so diag- • Coaching and training for capacity development nostic work was undertaken to determine the potential amongst implementation teams using the Rapid binding constraints to the public sector reform in the Results Approach which would provide a vehicle for country, and outline potential solutions to them. Criti- jumpstarting action, help keep teams on track to cal challenges identified were the insufficient capacity project milestones, and provide monitoring/track- amongst those responsible for implementation and ing support on progress. supervision, and the lack of coordination amongst key In June 2012, the World Bank Leadership Practice agencies. launched support by delivering an orientation and The World Bank’s Leadership program was intro- training on the Leadership for Results program duced as a support tool to help “joined-up working” of approach to create awareness of the potential value actors for greater chance of successful implementation added for the Pay and Performance Project. The across agencies of project objectives. It was designed output of these sessions was to generate work plans to involve: for Rapid Results Initiatives (RRIs, which are 100- 3 Figure 3. Map of Initial and Evolving Outcomes An outcome map illustrates how key outcomes along a timeline have connected and built on each other to form multi-actor, institutional processes for change. day mini-projects) to assist in the achievement of its financing operation from the start by lending high disbursement-linked indicators (DLIs). The Leadership levels of support and visibility to the initiative. This Practice has also facilitated leadership-level dialogues provided an authorizing environment to problem-solve to assist in problem-solving and maintaining the implementation challenges and overcome concerns of supporting authorizing environment to continue past failure to achieve targets in priority areas. progress. By June 2014, over the course of two years, the Outcomes World Bank Leadership Practice’s ongoing support has Key outcomes in this area and their significance helped advance key results by the government, even in include: challenging budget environment. • In April 2012, the Leadership Team of the Pay & Performance Project, including all key agencies OUTCOME STORIES involved in civil service reform, expressed concern about the failed civil service program in previous I. Leadership team commitment to culture attempts and a renewed commitment to do what of performance it takes to succeed this time. They identified Senior officials from key agencies who comprised the need to foster a culture of performance and the Leadership Team championed the results-based delivering results. They also needed to encourage 4 the development a sense of ownership over project KEY LESSON FOR OUTCOME STORY I goals amongst the main implementers of the project. The exercise of mapping outcomes helped the team to understand the critical role of the Leadership Team • The Minister of Finance and Economic Develop- for guiding and facilitating the change process. The ment (MOFED) led agreement among Leadership Leadership Team, comprised of senior officials from Team members to use the Leadership for Results key implementing agencies, provided high-level approach to assist implementing agencies in the support for the L4R approach to move forward and a Pay and Performance project implementation. strategic oversight function to collectively guide the Before this, for years, civil service reform had not priority changes for civil service reform. been receiving high-level attention and programs • Civil service reform had not been getting high- were not being delivered successfully. The main level attention. High-risk projects and failure in meeting targets meant that the public perceived function of the Leadership Team created this time no value in further investments in civil service around is to regularly monitor that the progress reform. toward achieving Disbursement-Linked Indicators • The Leadership Team is led by the MOFED. Key (DLIs) is on track. The oversight of the Leadership high-level members include the Chief of Staff Team from the start has facilitated top-level support (Office of the President), the Secretary to the to problem solve during implementation, take pre- President, and the Secretary to the Cabinet (Head ventive action to remove any anticipated impedi- of Civil Service). ments to the achievement of DLIs, and ensure Indicators for tracking this change process could smooth implementation of project activities. Since include: the project was designated as a flagship project • High-level representation of key agencies on and is a pillar in the Government of Sierra Leone‘s leadership team (Y/N for list of identified agencies, Agenda for Prosperity (PRSP 3), the President is also as described in charter or other formal document) supposed to review its progress on a regular basis. • Frequency of dialogue meetings to review progress; % of Leadership Team members Program Contribution regularly attending meetings (as evidenced by The World Bank Leadership Practice provided an meeting minutes to show level of commitment to process—with “regularly” defined) orientation workshop on the L4R approach and helped • Agreement of Leadership Team on priority projects the government Leadership Team members refine (minutes, media) work plans for priority areas. Ongoing dialogue was facilitated with the Leadership Team throughout the project to support an iterative, diagnostic approach to solving problems. This included an onboarding support the real-time review of findings and adaptive Leadership session in June 2013 for new leaders of the learning for addressing implementation challenges. PSRU and HRMO who were transitioned in after the presidential elections in November 2012. It was critical II. Teamwork across civil service agencies to for them to get up to speed quickly on understanding advance targets the project – the progress made thus far, and the chal- Inter-agency implementation teams advanced prog- lenges needing to be resolved. Providing this continu- ress to meet targets set by intermediate outcomes ity was important to continue making progress and and DLIs in priority areas of the Pay and Performance to update the new administration more broadly. This Project. This experience led to a growing number of session also helped to discuss and strategize on how teams forming and using the Rapid Results Approach to unblock the major challenge of funds flow to allow (RRA) to support civil service reform. teams the resources to move forward with implement- ing their work goals. The Leadership Practice facili- Outcomes tated a second leadership level dialogue in February Key outcomes in this area and their significance 2014 to review and determine progress on DLIs and include: consider what may be achievable and what may need • In June 2012, implementation teams launched time extension to the Project to allow for time to reach Rapid Results Initiatives (RRIs) to accelerate prog- achievement. Guidance was provided as needed to ress on priority projects that were at high risk of not 5 being achieved on time. Teams were formed, work KEY LESSON FOR OUTCOME STORY II plans were created and timelines for implementa- tion were established to help get them on track. The new culture of teamwork across government was critical for advancing priority results. The RRA The DLIs were already behind schedule in the Year supported this culture by building inter-agency teams Zero of the project. RRIs were in high-demand by to implement the DLIs. The mapped outcomes the Leadership Team as a mechanism to jumpstart indicated that this new culture emerged through the action to advance DLIs and these were launched following sequence. in priority areas. (The Rapid Results Approach had • Successful advance of DLIs required coordination been used previously in Sierra Leone to support its across various ministries, departments and decentralization effort and some government lead- agencies. (Civil service reform efforts in ers had remembrance of this approach). Sierra Leone have been plagued by intrinsic fragmentation, with various agencies holding • The Head of Selection and Development of the responsibility for different key related roles in the PSC and team leader of RRIs commented that: reform process). “there has been a beautiful articulation of the proj- • Coaches played a critical role in mentoring multi- ect, its milestones and DLIs by government leader- agency implementation teams to implement RRIs ship and World Bank, but the key is in its implemen- for priority projects. tation and how we, in our teams, actually go about • In the environment supported by L4R, between making these changes.” She reported that the RRI coaching and facilitated leadership team process had helped teams “contextualize their dialogues, teams advanced progress and improved their collaboration. thinking” to “understand the logic between mile- • As agencies reviewed evidence of progress, stones, DLIs and outcomes” and “translate these additional initiatives were launched, such as on concepts into action-oriented terminology for the communications and pay reform. This expansion team to begin concrete steps.” signaled the growing perceived value and culture • By July 2012, however, many teams were not on change in the use of the RRA across government. track in their RRIs, and the Leadership Team identi- fied the need to recruit a national coach that could Indicators for tracking this change process based on follow the work throughout and ensure consistency Public Sector Reform Unit records could include: • Increased collaboration, trust and teamwork and persistence with the implementation teams. among implementation teams (survey of RRI There was a need for coaching on a day-to-day teams) basis in-country to follow up with the teams as the • Problem solving skills of coach (coach assessment) regional coaches initially recruited in June 2012 had left the country (based in Rwanda and Sudan) and were not available for continuous support to teams. agency objectives are dependent upon the suc- A national Sierra Leone coach was recruited by cessful achievement of other agency goals, and that October 2012. they all had to mutually support one another. They • The progress of the implementation teams began reported a greater level of trust and communication to advance. Key agencies using RRIs came together between teams. to review results before the Presidential election • By June 2013, at the RRI review session, the Director in November 2012. The documentation of strong of Strategy and Planning for HRMO reported that progress meant that new leadership in the key “this program has brought us all together under agencies would be empowered to continue this one umbrella - it’s a very big step we’ve taken…We work. In the next review in early 2013, the teams must emphasize lessons learned from the process again reported strong progress on the targets as in the past year and more…The point is we had to well as increased collaboration and communica- bring everyone on board and everyone has now tion among those engaged in the RRIs from differ- been brought on… I’m very hopeful and happy for ent agencies. This illustrated the value of the team the level of collaboration we have attained and I’m approach to problem solving. quite sure that whatever challenges we have on dis- • In March 2013, during the RRI review session, teams bursements is just a delay – but money will come… expressed a greater understanding that challenges we will re-strategize and try to achieve our aims. are cross-cutting across all teams, that their own We’re not heading for failure – yes, delays are there, 6 but now let us focus on lessons learned. In payroll focus and motivation, was critical for an adaptive man- integrity our main lesson was that we didn’t know agement process to strengthen results in the priority the resources in terms of human capacity that we areas. had in our team: our staff can think fast and make things happen where there is difficulty – we came III. Culture of adaptive problem-solving to up with answers ourselves.” find solutions • From June to October 2013, the implementation Continuous dialogue between the RRI teams imple- teams had advanced progress to such an extent menting the priority projects and the Leadership Team that the Public Service Reform Unit wanted to was used to review (about quarterly) the likely success recruit the coach into their own institution and insti- or failure of project components and to support the tutionalize this work for the government. A second adoption of the expected results and specific problem- national coach was recruited by the World Bank solving to unblock implementation challenges. Leadership Practice to help support the RRI teams to share the workload of the other coach who tran- Example of problem identification by RRI teams sitioned into the PSRU. These outcomes show the • In early 2013, in the RRI review meeting, the RRI institutionalization of the results-based process as Teams highlighted delays in the release of funding an approach for teams to advance public service that slowed efforts to implement project activities. reform targets. Again, in the following review meeting in June, • In early 2014, the request to launch a new RRI team many of the RRIs teams reported that progress suf- on pay reform further demonstrated the perceived fered for those activities requiring the allocation value added of the RRA process for achieving of financial resources to advance, such as provid- results. No previous RRI had been launched in this ing training to supervisors on new performance area, so this outcome reflected the expansion of appraisal forms. However, teams had progressed on efforts to new areas. Pay reform is a major chal- non-monetary related activities such as designing lenge to the reform process and a DLI that needs to the forms. The focus by teams on completing non- be accomplished for the release of funds. finance-based activities in spite of funding delays showed strong commitment. The delay of funding Program Contribution was recognized as a cross-cutting challenge across The World Bank Leadership Practice mentored a rapid agencies slowing progress and brought to the results coach to support the inter-agency teams to attention of the PSRU and World Bank for them to identify RRIs in key result areas, provide training to act and to use their leverage with the MOF. This implementation teams, develop and advance imple- collective action demonstrates value of broad inter- mentation of their RRI team work plans to achieve the agency progress review for problem-solving. DLIs, monitor progress, and facilitate the holding of team meetings and sessions to update key stakehold- Example of Leadership Team support to advance ers. They also helped refine the composition of teams progress over time to ensure an effective mix of key persons • The Leadership Team discussed the key chal- from different parts of the government. lenges slowing implementation—the biggest con- Throughout this whole process, the RRI teams cern being funds flow. In response, in June 2013, were continually supported to unpack the problems the Budget Director within MOFED was officially at each step along the way towards taking actions to designated in a public space in front of all key achieve intermediate outcomes and DLIs. They were operational staff as the focal point for overseeing supported in developing work-plans and allocating funds flow for this particular project. This provided responsibilities to individual team members along a a country-level solution, putting the management concrete timeline of necessary steps to achieving their in the hands of the government, and avoided the results. Challenges encountered were communicated creation of a separate project implementation unit to those most able to help resolve them, and leaders (PIU), common under World Bank and other donor were kept informed. The coaches’ facilitation of the projects. team discussions to review progress and diagnose • The Budget Director indicated that the “issue of implementation challenges, as well as to maintain delays should not be a pointer on why we would 7 fail. It actually gives us opportunity to think on how to do things better. For the first time we are using KEY LESSON FOR OUTCOME STORY III existing country systems—we therefore have to set The retrospective examination of outcomes up a system that is capable of meeting the needs highlighted that the establishment of regular of MDAs and that facilitates flow of funds from communication and information flow across agencies through review meetings and Leadership Team outside donors more efficiently. But we won’t get it dialogue was instrumental for identifying and right first time. It’s only now that we know the real mitigating cross-cutting implementation challenges challenges, having tried to do this in past months, and leveraging practices that worked well. that we have been able to learn from it and what • Agencies using RRIs faced the same challenges, is needed. We will be faster next time and we will and the opportunity to come together in review work with the three RRI teams so we will together sessions to discuss results allowed them to identify achieve the DLIs.” key implementation challenges, such as the • In March 2014, through the Leadership Team dia- cross-cutting issue of funding delays that slowed progress. These were spoken about with the logue, the Minister of State committed to engaging Leadership Team to find timely solutions. with MOFED on the project—raising the project’s • Having the day-to-day support of a coach profile within the ministry and bringing it to the was instrumental for RRI teams. The coach attention of the Minister of Finance. He requested supplemented and facilitated the support of the to be copied on relevant correspondence on the Leadership Team, which was involved in cyclical project to the MoF to support moving it forward. progress reviews to give priority attention to help He also offered to help the process by taking it to find real-time solutions to challenges faced by the the Presidential level if necessary. The Minister of teams during implementation. • For example, when RRI teams identified funding State also offered implementing agencies advice on delays and a cross-cutting challenge to achieving how to more quickly have their budget allocations progress, the Leadership Team designated the approved so the funding could be received sooner Budget Director within MOFED as the focal point by the agencies. for overseeing the flow of funds to mitigate this • The open dialogue between the Leadership Team problem. and the World Bank created a cooperative environ- • This systematic knowledge sharing led to ment that allowed space for the government to collaborative problem-solving, with a new focal express its requests and needs, and for the Bank person designated in MOFED specifically for improving the management and flow of project to be responsive and responsible in making neces- funds. sary adjustments to the project lending agreement. This was done in a timely fashion, given the system Indicators for tracking this change process could for tracking progress and warning well in advance include: that deliverables may be off-track in terms of what • # review sessions held per year to facilitate was planned within the Project lending agreement. inter- and intra-agency knowledge sharing and This process of ‘course correction’ and adaptive collaboration (PSRU and Leadership Team records) implementation reinforces what we already know: • % of surveyed RRI team members who reported they had adequate opportunities to express that civil service reform is not a linear process and concerns during review sessions and participate in does not conform to a project document designed problem-solving (survey of RRI teams) at the beginning of the project - after which the • % of surveyed RRI team members who view the reality of implementation sets in (a massive reduc- Leadership Team as a resource for facilitating tion in spending to regularize arrears) and the progress and addressing implementation political economy of the country and incentives to challenges (survey of RRI teams) deliver on the results may have waned (given the dramatic rise in income from extractive industries in the past couple of years). The flexibility of reviewing government’s ability for the benefit of the citizenry, and adjusting of the results framework under the while changing the DLIs and updating the interme- project—completed in April 2014, two years after diate result indicators. its design—has allowed both the Bank and govern- ment to keep making progress to the best of the 8 Program Contributions • From October 2013 to March 2014, the PSC Recruit- The World Bank Leadership Practice facilitated discus- ment team advertised priority vacancies for 211 sions with the RRI teams and dialogue with the Leader- vacancies in 6 key ministries, departments and ship Team to review progress and address challenges. agencies --Ministry of Social Welfare, Gender and They provided iterative diagnostic support to inform Children’s Affairs, Ministry of Agriculture, Forestry corrective action as needed. Coaching support helped and Food Security, Ministry of Labor, Ministry of to strengthen communication, and formal retreats as Fisheries and Marine Resources, MOFED and mentioned above helped to ensure regular and timely National Fire Services. The team prepared a long knowledge sharing. list of a total of 3,600 applicants within a week, and shortlisted and invited 1,245 for exams (1,162 took IV. Achievement of results on disbursement- the exams); 137 new positions were concretely filled linked indicators by March 2014. The team is making progress on The RRI teamwork designed to accelerate progress on the DLIs. The target is 280 vacancies (of 350 for the priority areas of civil service reform was largely suc- 2013 Annual Recruitment Plan). cessful, with notable advances in DLIs related to pay incentives and recruitment, performance management, Performance management payroll integrity, and communications. • HRMO created a Ministerial Performance Appraisal Committee in eight pilot ministries, departments Pay incentives and recruitment and agencies (MDAs). There had been no formal • From July to September 2012, the Human system for monitoring progress of civil servants’ Resources Management Office (HRMO) completed performance. This is a first step to introduce the a remuneration survey. This survey and a planned performance management component into HRMO job evaluation survey were to assess the labor mar- that will, in the future, manage the performance ket and guide the reforming of pay scales. appraisal of civil servants. The project plan was to • HRMO also completed manpower hearings and work in phases, starting with 8 pilot MDAs before it planning to determine recruitment needs for the rolled out to all 22. This work has been supported following year. This step helped to identify critical by Chief of Staff providing training to HRMO. gaps in positions in the government, particular at • From December 2012 to March 2013, the HRMO middle and senior levels. Performance Management Team conducted needs • The Public Service Commission (PSC) Recruitment assessments of pilot MDAs for staff to support the team recruited 210 new persons (meeting their new performance appraisal system. The team held target under the project DLI for disbursement of sensitization sessions on the new appraisal system $1m) between June 2012 and February 2013 to fill in three regional head quarter towns for senior civil priority vacancies. This involved a lengthy process servants from the districts, designed and approved of conducting civil service exams, long listing of new appraisal forms and guidelines for staff com- candidates, and then short-listing them. PSC strug- pletion, and prepared a proposal for civil servants gled to get financing for the work to be done, and training on performance appraisals. Pilot steps in the Chairman of PSC was funding electricity and the 8 MDAs were to inform the design and imple- paper to print on from his own pocket. Staff worked mentation of an appropriate performance appraisal overtime on Saturdays to move things forward. The process for collecting information and functioning priority vacancies were positions of critical impor- in individual ministries. Part of the roll-out of the tance to the government, for example in informa- new system would require communicating how it tion communications technology and fire service. worked to senior officials/ managers in the civil ser- Having such positions vacant adversely affected the vice, such that they could then train their staff. HR functioning of government agencies in the delivery and Performance Management units in all ministries of critical services. The filling of these vacancies needed to be trained. demonstrated the commitment of the team to • The HRMO Performance Management Team were advance progress, despite challenges. This is a key delayed in delivering training due to delayed dis- outcome to help advance DLIs related to recruit- bursements of funds but continued progress once ment and staffing. they received funds in July 2013. Immediately on 9 receipt of funds 230 officials received training in individual performance target setting. The team KEY LESSON FOR OUTCOME STORY IV printed appraisal guidelines and 18,000 appraisal Collectively, efforts to document the progress of the forms, and organized meetings in the pilot 8 MDAs rapid results initiatives showed the importance and on introducing performance targets. These steps value of using disbursement-linked indicators. These DLIs provided concrete milestones for the RRI teams advanced performance management Project activi- to advance civil service reform in priority areas where ties. The guidelines are designed to assist ministries progress was slow or unlikely. in formulating performance targets. Training was to • While the government has acknowledged that it facilitate the introduction of the new process. must broadly reform its civil service policies and • The HRMO Performance management team dis- practices, limited progress had been achieved tributed the required performance appraisal docu- related to identified priorities. No or limited ments in 12 pilot MDAs (Forms and Guides) for a evidence of results has shaped the perceptions total of 798 civil servants in grades 7-10. By March of the citizenry, who see no rationale or value of putting additional investment into a broken system. 2014, 230 senior and middle level civil servants • The establishment of a results-based financing (Deputy Secretaries, HR Managers/Officers) had initiative means that funding in each priority area received training in performance management. is tied to various milestones to signal satisfactory A draft Systems Requirements and Specifications progress. These milestones—known as DLIs—must (SRS) manual was developed, and over 60% of civil be achieved to trigger the next disbursement in the servants in the pilot MDAs completed the first per- funding stream. formance review. • Linking the RRI teams to the DLIs provided a • The significance of this outcome is that previously, roadmap for teams to indicate whether the current implementation plan is working or whether there had been no structured means for monitoring adjustments are needed. Over two years many of the performance of staff and holding them account- the DLIs have been met. able to cascading performance contracts for each ministry coming down from the President. Indicators for tracking this change process could • Even though all this intensive work was include: accomplished, HRMO did not meet the DLI for • % of RRIs making satisfactory progress toward DLIs disbursement of World Bank funds under the • # of adjustments to DLIs made to avoid failure; project. The Project was behind target given #unsatisfactory DLIs, with no corrective action • Implementation teams formed to advance progress that the financial delays had slowed down action on DLIs, with cross agency, department or ministry on delivering training and issuing guidelines components [Y/N] and appraisal forms, meaning that a full annual appraisal could not take place (it could only be done for the remaining months of the year between July and December). This DLI has then been carried promotions, 8 salary deductions, 16 names deleted, over to the next year. 4 resigned, 18 transferred 2 reinstated, 6 suspended, 227 retired and recorded 109 went on vacation leave. Payroll Integrity These steps advanced the action plan for payroll The HRMO Payroll Integrity Team updated the payroll integrity. to have a comprehensive list of civil servants in the The HRMO Payroll Integrity Team also initiated payroll and introduced measures to maintain improved NASSIT (social security) numbers for civil service payroll integrity going forward. They addressed the personnel. Since then, 1477 numbers have been problem of ghost workers on the payroll that are being issued with the Accountant General Department, and paid for work not done by them or not being done approximately 523 remain outstanding. This develop- at all and fraud on the payroll (names and dates of ment shows progress on a long-standing challenge birth registered with social security numbers are not that posed a bottleneck to progress on cleaning the accurate). These problems all carried a great financial payroll. Without having social security numbers, the and efficiency cost to the government. As an example, HRMO could not create personnel files for new recruits for the months of August and September 2013, 115 and could not therefore keep the payroll up to date. staff received salary arrears, 104 were recruited, 22 This was achieved through much closer collaboration 10 with the Accountant General Department and focus on ACKNOWLEDGMENTS this issue – explaining the importance of issuance of Thanks to the World Bank’s Governance and Public numbers and prioritizing action on this. Sector Global Practice and the World Bank Leadership Practice involved in the mapping exercise: Roberto Communications Panzardi, Senior Public Sector Specialist and project The PSRU Communications Team completed a com- Task Team Leader; Kay Winning, Leadership and Rapid munication strategy for the project, held weekly radio Results Specialist. Thanks to all of the persons that and TV discussion programs in December 2013, and provided information to document this case. prepared a newsletter Reform Spot Light. By March 2014, the team launched a dynamic website to com- WBI’s Capacity Development and Results team led municate to citizens the progress being made under the outcome mapping; Jenny Gold and Dawn Roberts the project. This is a critical outcome to keep citizens coordinated the exercise. Sharon Fisher provided and civil servants up to date on the process and writing, editing and design support. Samuel Otoo explain what progress is being made given the long provided overall guidance. history of promising reform in civil service and pay reform for civil servants that has not concretely materi- alized. Local Technical Assistant mainstreaming The Local Technical Assistant mainstreaming team in HRMO encountered difficulties as the restructuring proposal for MOFED with the agreed organization, positions and grades had not yet reached the Re- grading Committee for approval and the revised policy had not been approved by the Civil Service Steering Committee. There is strong resistance within pockets of the government to approving this document, for example in the MOFED, where there are many Local Technical Assistants. The document is not aligned with the incentives of LTAs as it would likely mean large pay-cuts for those who are currently Local Technical Assistants. This DLI is not on track in this project, and had already been cancelled from a previous World Bank lending project for inclusion within the P&P project. It is a long-standing and highly political issue that requires a strong desire to make progress on, and focused attention to do so. Program Contributions The World Bank Leadership Practice provided day-to- day support to the rapid results coaches with strategic guidance as needed to facilitate changes in planned actions for priority areas of civil service reform. Adap- tive leadership training and team-building activities were designed to help staff in key agencies overcome challenges and advance results. n © June 2014 World Bank 11