Good Governance Sensitization Workshop for Senior Policy Makers from Afar, Harar and Somali National States
By Alemayehu Seberu and Mulu Sendek-
The Ministry of Federal
Affairs and the Development Policy Management Forum (DPMF) have launched a
collaborative program to enhance the leadership capacity of senior policy
makers of the National States of Ethiopia. As part of this program this
workshop on the broad theme of Good Governance was conducted for senior policy
makers from the National States of Afar, Harari and Somali from 13-17 October
2003 at the U.N. Conference Centre in Addis Ababa.
The workshop was opened by H.E. Dr. Gebreab Barnabas, Minister of State, Ministry of Federal Affairs, and Prof. Abdalla Bujra, DPMF Executive Director.
Different scholars invited from India, Brazil, South Africa, Kenya, Nigeria, Tanzania and Ethiopia presented papers on the sub-themes of Federalism, Good Governance, Democratic Civil Service, and Conflict Prevention, Management and Resolution. The Institute of Federalism and Local Governance Studies (IFLGS) of the Ethiopian Civil Service College had earlier prepared a survey report on the specific situation of governance in six national states and report was compiled on the findings. These findings were also presented to the participants. Thus, the Plenary Session in the morning was devoted to the presentations by the resource persons and discussions on the issues they raised while the afternoon was devoted to Working Group discussions on these as well as the issues raised in the Plenary Session.
On the last day of the workshop, the participants discussed the workshop report prepared by the rapporteurs and identified the lessons they learnt from the workshop. The workshop came to an end with a closing remark by Prof. Abdalla Bujra, DPMF Executive Director, and Ato Meresa Reda, Head of the Democratization Department of the Ministry of Federal Affairs.
The following papers focusing on this sub-theme were presented for discussion:
a) “Aspects of Federalism in Indian Context,” by H.E. Mr. Ashoka Kumar Rastogi;
b) “Accommodation of Identities in the Indian Federal System,” by Prof. Akhtar Majeed;
c) "Local Government in Kenya,” by Dr. Winnie V. Mittulah;
d) “The Relevance of Nigerian Experience in Federalism to the Ethiopian Context,” by Mr. Mohammed Habib;
e) “Co-operative Governance in the Republic of South Africa 2003,” by Dr. Anneke Muller;
f) “Federalism and Local Government in Brazil: Lessons for Ethiopia,” by Dr. Horst Matthaus;
g) “Federalism in Ethiopia: An Overview,” by Mr. Mitiku Mada.
Based on the presentations the following questions were raised by the workshop participants.
a) The states that form the Indian Union do not have their own Constitution. What is the reason for this?
b) How does the Indian constitution accommodate the interest of minorities?
c) The States did not participate in the formulation of the constitution. How can they be expected to abide by the constitution?
d) How is power divided between the central government and the provinces in South Africa?
The respective presenters gave further clarification on each of these issues.
Question: Tribal leaders in Afar possess land. What is its effect on Federalism and the Federal Constitution?
Response: According to the Federal constitution land is owned by the people. If tribal leaders possessed the land, it becomes unconstitutional and affects investment. Investors will be forced to discuss with individuals when they want to invest in the area. This is also a challenge to the Federal system.
Question: How are minorities handled in the Afar Regional State?
Response: In handling minorities, a special woreda is established to address their own problem. The Argoba Special Woreda can be cited as an example.
Question: Although the regional states have high potential resources, they are poor in development. What is the key problem?
Response: There are different problems that hindered development; some of these are: shortage of skilled manpower, low level of capacity and commitment of the executive and lack of infrastructure.
Question: How can we ensure that our policies address our diversity?
Response: Federal policies are enacted by the federal legislative organ (House of Peoples Representatives). In this organ each nation and nationality has its own representative. This enables us to entertain various problems and concerns of the diversified society.
Question: In some of the “emerging” states there is high instability and turn over in political leadership and the civil service. How can we minimize the difference in the level of development?
Response: The instability and turnover of political leadership is one of the constraints for development. The regional states should give due consideration to solve it.
Question: What is the role of tribal leaders?
Response: Tribal leaders have a significant role in the society, especially in maintaining peace and order. However, their role is not effectively utilized.
Question: What does empowerment mean and what type of empowerment is expected other than the powers indicated in the constitution?
Response:
After defining the powers and functions of the Federal and State
Governments the constitution has reserved the remaining powers to be exercised
by the State Governments. Therefore, it is not clear as what is intended by the
presenter when he indicates empowerment other than the powers listed in the
constitution.
Participants made the following additional comments and suggestions during the group discussions:
· The group discussed the duties and responsibilities the Ethiopian Federal Government and the regional states. The Federal Constitution enumerates the powers of the Federal and State governments. In Ethiopia, those powers that are not specifically given to the Federal Government are reserved to the States. However, the working of the Federal system is still not well understood. Moreover, duties and responsibilities of the Federal government and Regional States are not well popularized. And it was noted that the regional governments’ powers are not fully exercised.
· There are various factors that bind the States to be governed under the Federal system. Some of the reasons are: they share similar culture, history and interest and have lived together for centuries. Besides, they have adopted a Federal constitution that respects and maintains their interest ensuring self-determination.
· Federalism differs from one country to another. In Ethiopia we follow the parliamentary system. In this system individual and group rights are respected. This makes it different from other federal systems.
· Ethiopian Federal system encompasses economic and social issues.
· Ethnic conflicts are not a manifestation of weaknesses in the Federal System. They existed widely and in a worse form even under the unitary system of Ethiopia.
· Most development policies do not address the issues of pastoralists. However, recently some measures have been taken to this effect. Such efforts should be encouraged because contribute to the strengthening of the Federal system.
· State Governments should carry the task of solving problems that arise within their areas. They should also promote development activities in their respective regions. The Federal Government is also expected to provide adequate assistance to the state governments when requested.
The following papers were presented for discussion on this sub-theme:
a) ''Tanzania Public Service Reform Programme: Challenges and Prospects,” by Mr. G.D. Yambesi;
b) “Civil Service and Democratization in Kenya,” by Dr. Winnie V. Mitullah;
c) “Reforming Civil Service with Purpose – Salient Features, Challenges and Prospects: The Ethiopian Experience,” by Dr. Abebe Haile Gabriel.
Based on the
presentation the following questions were raised by the workshop participants.
a)
What is the
rational behind motivating civil servants in Kenya for early retirement?
b)
What is the
problem facing the civil service in relation with ethnicity in Kenya?
c)
Kenya is said
to be among the top corrupt countries in the world. Does that mean the civil
service reform has a problem?
d)
What is the
key problem or challenge in the civil service reform program of Tanzania?
e)
What is the
experience of Tanzania in declaring the wealth of public officials?
The respective presenters gave responses and further clarification on each of the above questions.
Question: What are the major constraints in implementing the civil service reform in the Harari Region?
Response: The government set a system and order in which customers can present their complaints. In the Harari region, however, this order was not being adhered to. Customers’ complaints were presented wrongly or to inappropriate officials that did not have direct relationship with the issue and source of the complaint. The time limit to respond to the complaints was not also being respected.
Question: How does disagreement between the political parties discourage private investment in the Harari region?
Response: First of all investors become interested in investing their money and capital when there is peace in the area in which they intend to invest. They have to be sure and confident that the condition in the area will not disturb their activities. Accordingly, there was a fear that conflict of interest between the political parties could hamper the activities of investors. However, it should be clear that shortage of water in the region is the major constraint that impedes private investment and other economic development activities.
Question: There is a problem in retaining trained manpower in the Harari region. What are the major causes for this?
Response: Yes, this is reflected mainly in the area of engineering and health services. To solve this problem, the region is trying to create some mechanisms to retain these and other professionals. In the case of engineers a top-up payment has been started. With regard to health professionals, especially medical doctors, the region is planning to provide housing facilities.
So far, 17 health professionals have left the region. The region has now started to present these cases to the court so as to get compensation for the cost of their training.
Question: Did the civil servants in the Afar region really accept the civil service reform?
Response: Various conferences were held to convince the civil servants about the advantages of the reform. The civil servants were convinced that the reform would bring about changes that improve the effectiveness and efficiency of the civil service system. On this ground it can be said that the reform is generally accepted. However, in practice there is a strong resistance from different areas, starting from the political leadership up to the lower level civil servants. Many civil servants apply for release when they are assigned to the woredas. There are also many untrained and unqualified personnel who are employed either by friendship or producing fake credentials. Moreover, the climate, weak infrastructure, etc., are other constraints to employ highly qualified personnel.
Question: Why has the civil service reform not yet started in the Afar region?
Response: The reform is now being implemented in nine selected model offices. The reform started late so as to establish woreda councils that play a major role in facilitating its implementation. However, there is still a problem in assigning the right person to the right position. Many unqualified civil servants are struggling to safeguard their positions.
Question: How far has the Afar Regional State utilized the existing human power in the civil service?
Response: One of the major problems that affect the development of the region is the inefficient utilization of its resources. Although there is high shortage of manpower at all levels, there is a delay in recruiting and selecting employees. Thus, it is not correct to complain about shortage of manpower without efficiently utilizing the existing ones.
Question: If there is a problem of commitment in the civil service and weak supervision can we say there is an effective state administration?
Response: Supervision is not the only measurement for the efficiency of a state. All the activities of the state should be examined from different angles and discussed thoroughly in order to reach a conclusion.
Question: What are the causes for the lack of commitment of the civil servant?
Response: The problem of commitment starts from the political leadership and top management. They should serve as a model to the civil servants and the people in general. They should also create a good working condition and relationship that motivates civil servants to exert their efforts.
Question: Does the Somali Regional State effectively use the existing manpower in the civil service? What are the causes for high turnover of civil servants?
Response: There is a problem in utilizing the existing manpower in the region. This problem is similar to that of Afar State. Efficient people are not assigned at the proper place whereas inefficient civil servants are assigned in a position not comparable with their capability or qualification. These individuals held a higher position either by producing forged documents or by using the relationship they have with the leadership. Accordingly, there are many trained professionals in various fields not assigned according to their profession and qualification. This is now creating frustration among the civil servants. Due to these, five civil servants went to Hargessa to be employed there.
Question: Is the instability in the Somali Regional State decreasing?
Response: The instability in the region is mainly political. Its source is the struggle for power among different groups. This problem has not yet been resolved or minimized.
Question: Is there any incentive or provision for the civil servants who are assigned in the remote areas of the Somali Region?
Response: Except hardship allowance, there is no other incentive that can attract professionals to work in the remote areas. This highly affects the decentralization process of the civil service.
· The Afar region is one of the regional states of Ethiopia which has been marginalized politically and economically for the past decades. Lack of access to public education by the Afar people is manifested in the low capacity of the regional leaders. For instance, out of one million population the number of skilled manpower having a first degree and above is only 200.
·
It was noted
that the problem occurred due to the lack of sufficiently trained manpower and
other related problems. The tendency not to accept professionals that have come
from outside the region was related with the attitude that used to exist in the
regions previously and presently such attitude is decreasing.
· In Somali Regional State, recruitment and selection of civil servants is based on clan affiliation rather than using merits such as qualification, professional competence, etc. Consequently, this leads to domination of the civil service by one clan.
· In some of the “emerging” states there is high instability and turn over in political leadership and the civil servants.
· The necessity of the civil service reform program is to build a civil service which is free from inefficiency and deficiency, which is transparent, and result-oriented, and therefore, which can make the development effort quite successful. However, civil service programs are still not fully implemented in these regions.
·
In
introducing the civil service reform program to these regions, different
problems have been encountered. There is lack of commitment from the civil
servants. They are more worried about their job security and position. When one
official is changed every civil servant up to the lower level shouts. The major
problem lies in the political leadership and top management. The Federal
government should assist the states to implement the civil service reform and
decentralize the system.