2002年-世界发展银行全球_International_Experience_with_Civil_Service_Censuses_4页_329kb

Summary of International Experience with Civil Service Censuses

Core Content

Civil service censuses, aimed at improving public sector management in developing countries, have often failed to produce lasting improvements. The World Bank and International Records Management Trust conducted a survey of 31 censuses from 1978 to 2000-19, highlighting the challenges and lessons learned from these exercises.

Main Objectives of Civil Service Censuses

Civil service censuses have been conducted for various reasons, but three main objectives are commonly identified:

• Cost-cutting: Many early censuses focused on identifying and removing "ghost" workers (fictitious or duplicate entries) to reduce payroll costs. Examples include Cameroon, Chad, and Nigeria.
• Restructuring: Later censuses aimed to enhance productivity by restructuring departments and functions, often involving detailed data collection on employee skills, ages, and genders.
• Establishing a baseline: Some censuses were used to create a baseline profile for transition economies, aiding in planning and budgeting.

Regional Distribution of Censuses

The survey included censuses from different regions:

Africa had the highest number of censuses, but also the weakest civil service controls. Latin America saw fewer censuses in recent decades due to improved administrative systems.

Methodologies Used

Three primary methodologies were identified:

1. Physical headcounts: Involves direct verification of employees, often requiring identification and documentation. Used mainly for cost-cutting. Examples: Cambodia, Cameroon, Zambia.
2. Questionnaires: Used to collect detailed data for restructuring or baseline analysis. Requires cooperation from local data providers. Examples: Georgia, Tanzania, Orissa.
3. Payroll reconciliation: Compares payroll data with other sources like personnel files. Least favored due to data source limitations. Examples: Yemen, Uganda, Zimbabwe.

These methods are not mutually exclusive and are often combined in practice.

Key Lessons Learned

• Strategic planning is essential: Censuses must be well-planned with clear objectives and aligned with local capacity and context.
• Long-term institutional investment: Censuses should be part of a broader strategy for maintaining accurate and up-to-date personnel and payroll systems.
• Incentives for compliance: Staff and managers must be motivated to ensure data accuracy, such as withholding payments for unverified employees.
• Coordination and local ownership: Success depends on coordination between relevant ministries and local ownership of the census process. Censuses that are perceived as externally imposed tend to be less effective.

Conclusion

Civil service censuses can be valuable tools for improving public sector management, but their effectiveness is highly dependent on clear objectives, appropriate methodologies, and strong institutional support. The experiences of various countries suggest that a comprehensive, strategic, and locally owned approach is necessary for meaningful and sustainable results.