of any organization. (Dr. Reddy, The Hindu, Educationplus, April 15, 2013) Chapter Four The Background of Regional States studied

Transcription

1 It would be possible to replicate a product, infrastructure, technology, etc within a certain period of time, but it may not be easy to replicate talent and core competence of human resource of any organization. (Dr. Reddy, The Hindu, Educationplus, April 15, 2013) Chapter Four The Background of Regional States studied In this chapter, an overview of Ethiopia, the regional states of Amhara and Benishangul- Gumuz, the selected Bureaus, and an overview of human resource development in Ethiopia are provided The Country context of Ethiopia Ethiopia was formerly called Abyssinia. Unique among African countries, it has never been colonized. It is located in the North-East part of Africa (map on page 15) popularly known as the Horn of Africa, between 3 0 and 5 0 North of latitude and 33 0 and 48 0 East of longitude. It is bordered by Djibouti and Somalia in the East; Eretria in the North; Kenya in the South; Sudan (North and South) in the West. Topography and climate Ethiopia has the total land area of 1.1 million km² ( sq. mi.) being the second largest country in the Horn of Africa after Sudan, about twice the size of Kenya, or France or Texas, comprising great topographic and climatic diversity. It has high and 137

2 rugged mountains, flat topped high plateaus, deep river canyons, rolling plains and dry low lands. Its topographic features ranges from the highest peak 4,620 meters above sea level (Ras Dashen Mountain) in the North-West down up to the 110 meters below sea level (Dalole - Afar depression) in the East. The climatic condition of the country varies with the topography and ranging from 47 0 C to 10 0 C. It is temperate in the highlands; tropical in the lowlands; dry season is from October through May; wet season is from June to September. The rainy season generally occurs between June and September, often preceded by a period of less heavy rains from March to May. Due to topographic and climatic variation, majority of the population lives in the highlands of the country; and the major occupation of the settled population is subsistence farming. The low land comprises two-third of the country where few people live and they are mostly pastoralists and semi-pastoralists. The people, Language and Religion Ethiopia is one of the populated and fast growing countries in Africa with an estimated population of 82.5 million according to 2007 Population and Housing Census of Ethiopia. It is the home of diverse people wherein various nations, nationalities and people with diversified culture, linguistic and large ethnic compositions about 80 ethnic groups that vary in population size are living together harmoniously. 138

3 The widely spoken languages are Amharic and Oromifa. The working (official) language of the Federal state is Amharic, and some Regional states use their own languages as well. English is the major foreign language used as a medium of instruction in schools. 51% of the population is Orthodox, 33% is Muslim, about 10% are Protestants, and the remaining adhere to other religious faiths, (Ethiopia Statistics Authority (ESA) 2007 and Ethiopia - Country Profile). The Economic scenario Ethiopia is rural in character as nearly 83 % of the population lives in villages. It has agriculture friendly climate and rich fertile soil. Agriculture was practiced since time immemorial and even today it is the primary and the most practiced as well as the major occupation for over 80% of population. Even though the production level is largely subsistence in character, agriculture still remains and considered to be the backbone of the national economy, (GTP, 2010). Industry and service are at the infancy stage of development in Ethiopian economy. Most of the industries available in the country are small scale or at manufacturing stage like food and beverage, leather, etc. Infrastructure was one of the poorly developed and even unavailable for the majority of rural population in Ethiopia, but in recent years significant measures have been taken and great improvements are seen especially in roads construction, electrictrification, telecommunication, and air transport services. The economic development strategy pursued by the Government currently centered on an Agricultural Development-Led Industrialization (ADLI) policy with a focus on 139

4 productivity growth on small farms and labor-intensive industrialization. In general, due to enabling policy environment and regulatory framework since the mid of 1990s the government has launched a series of economic reform programmes towards achieving broad-based growth in a market-driven stable macro-economic environment. The political scenario In 1974 the military junta deposed the semi-feudal regime who had ruled since 1930 and established the socialist state. Torn by bloody coups and uprisings the military regime was finally toppled down by a coalition of rebel forces, the Ethiopian People's Revolutionary Democratic Front (EPRDF) in Since 1991 significant political transformations have taken place in the country. The new government has taken drastic political and economic measures such as adoption of the new constitution; establishing the democratic federal state; decentralization of the political power and administration system to lower echelons to encourage public participation in decision-making; introduction of a multi-party system; holding of periodic elections; privatization and exercising free market policy which are vital for development. Currently the government of Ethiopia follows a federal system of administration (named as Federal Democratic Republic of Ethiopia) and the country is organized into nine Regional States and two City Administrations, (see table 4.1 below). The government structure has administration layers such as Federal State, Regional State, Zonal administration, District (woreda) and local administration (kebele - which are based on 140

5 the urban dweller and peasant associations) in order to devolve adequate decision-making power to lower administration levels. Table 4.1: List of Regional States and City Administrations of Ethiopia Name of Regional States and Identification No. City administrations 1 Tigray Regional State 2 Afar Regional State 3 Amhara Regional State 4 Oromiya Regional State 5 Somali Regional State 6 Benishangul-Gumuz Regional State 7 Southern Nations, Nationality & people Regional State 8 Gambella Regional State 9 Harari Regional State 10 Addis Ababa City administration 11 Dere Dawa City administration 4.2. The Amhara and Benishangul-Gumuz Regional States Among the nine Regional States, two are Amhara Regional State and Benishangul- Gumuz Regional State. Regional states in Ethiopia are largely responsible for their respective regions socioeconomic development. These two regional states are neighboring regions but with relatively different in socio-economic infrastructure. Comparatively, Amhara region is better than Benishangul-Gumuz region; and Benishangul-Gumuz region is one of the emerging regions in the country and very less populated than Amhara region. Since the central government has devolved power to the regional governments, each regional government also formally devolved adequate decision-making power to lower administrative echelons that promoted decentralization in order to get the people together 141

6 and closer. Accordingly, in HRM aspect, few of the powers and functions devolved to each regional government are the right to manage its civil service by performing HRM functions like recruiting, transferring, promoting, training and developing, performance and career appraisals and reward system. This has created each regional government to exercise its power in making decision on HRM/ HRD issues without waiting for another decision maker. The main agenda of the Government of Ethiopia is poverty eradication. To eradicate poverty in the nation government institutions need a capable, motivated, and efficient staff in order to effectively implement the policies and strategies in an integrated and comprehensive way and deliver on time quality services to its people at various levels of administration. Hence effective human resource management is a critical in today's Ethiopian public sector to ensure the right people at the right place at the right time; and effective HRD and HRD climate is the corner stone for institution building in the public sector, which in turn has an impact on the improvement of the performance of the country in general, and the regional states in particular. The Amhara Regional State The Amhara regional state is one of the nine regional states of Ethiopia that covers an estimated area of 170,752 square kilometers. It is located in the north western and north central part of Ethiopia. The Region shares common borders inside the country with the 142

7 regional states of Tigray in the north, Afar in the east, Oromiya in the south, Benishangul-Gumuz in the south west, and outside the country with North Sudan in the west (map on page 16). According to the projected population size based on 2007 census, the region's population in 2011 is 18,203,610 of which 9,130,980 are males and 9,072,630 are females. The urban dwellers of the regional state number are 2,299,045 and the rural residents are 15,904,565. The State of Amhara consists of 10 administrative zones, 163 districts (woredas - where 37 are town administrations), and 3439 local administrations (Kebeles where 314 are urban). Amharic is the official (working) language of the regional state, (Amhara BoFED, 2011). Since the region is one of the highly populated and relatively progressing regions, its regional government has employed a number of employees in its established offices at different layers to undertake the socio-economic and administrative activities in the region. According to the Amhara Region s proclamation No. 176/2010, at regional level totally 49 offices are established where one is The Regional Council (The Legislative), one is The Supreme Court (the Judiciary) and 15 are the Executives (Cabinet bureaus) and the remaining offices are accountable to the Cabinet bureaus. 143

8 Among the total offices 10 cabinet bureaus, the Regional council and the Supreme Court totally 12 offices are selected for this study (see table 4.2 below). Table 4.2:- List of the selected Bureaus and Sectors in both regions No. Name of Bureaus/ offices Sectors 1 Education bureau Social 2 Health bureau 3 Capacity building & Civil Service bureau 4 Women s, children s and youths bureau 5 Agriculture and Rural development bureau Economic 6 Water Resource development bureau 7 Trade and transport Bureau 8 Finance and economic development bureau 9 Administration and Security Affairs Bureau Administration 10 Regional Council Office 11 Supreme Court Office 12 Justice bureau According to Amhara BoFED 2011 statistical data, the total civil (public) servants working in the region counted 170,951 where 107,964 were males and 62,987 were females; and among these only 23,759 were with first degree and above academic levels/ qualification. 144

9 The civil servants increment in the last 10 years in both regions is illustrated in table 4.3 below. Table 4.3: Number of Permanent employees from in both Regions No Years Regions Amhara Benishangul-Gumuz Male Female total Male Female total 42,699 13,311 57,010 == == 4,811 44,683 14,662 59,345 2, ,075 45,747 15,534 61,281 2, ,635 44,742 15,554 60,296 3,668 1,395 5,063 45,308 16,956 62,264 4,372 1,865 6,237 47,219 18,992 66,211 4,840 2,186 7,026 48,449 20,731 69,180 5,165 2,336 7,501 49,175 22,831 72,006 5,852 2,654 8,506 55,430 26,028 81,458 6,259 2,804 9,063 56,115 27,404 83,519 6,916 3,098 10,014 59,634 33,459 93,093 6,916 3,098 10,014 73,303 43, ,191 6,419 2,457 8,876 78,520 44, ,355 6,876 2,589 9,465 78,520 44, ,355 8,106 2,557 10, ,830 69, ,895 9,560 3,062 12, ,964 62, ,951 11,391 4,977 16,368 (Source: Ministry of Civil service of Ethiopia, personnel statistics, June 2010) The Benishangul-Gumuz Regional State Benishangul-Gumuz regional state is one of the nine regional states of Ethiopia with estimated area is about 50, sq. kms. It is located in the Western part of Ethiopia bordering at the North with Amhara region, at the East with Oromiya region, at the South with Gambella region and at the West and South-West with North and South Sudan respectively (map on page 16). 145

10 According to BoFED of Benishangul-Gumuz region, the projected population in 2011 based on the 2007 census of the country was about 938,996 where 476,999 are males and 461,997 are females and about 86% live in rural area. The region has 3 zonal, 20 districts and 480 local (Kebele) administrations. This region was one of the marginalized areas with fewer infrastructures, investment, trade and even backward farming, but currently it is one of the emerging regions of the country. The Regional State, according to proclamation 2010, has established 32 Regional offices where one The Regional Council (The Legislative), one The Supreme Court (the Judiciary) and 14 are the Executives (Cabinet bureaus) and the remaining are offices that are accountable to the cabinet bureaus. Similar to Amhara region, among the total offices only 10 Cabinet bureaus, the Regional council and the Supreme Court totally 12 offices are selected for this study (see table 4.1 above). The Regional Government has employed a number of employees within its establishments (offices) at different layers in the region. According to BoFED of Benishangul-Gumuz 2011 statistical data, the total number of civil servants working in the region at all layers in 2010 fiscal year counted 16,368, where 11,391 were males and 4,977 were females; and among these only 2,077 are with first degree and above academic levels/ qualification. 146

11 4.3. The Bureaus under Study Each Regional state has established bureaus and offices according to the Regional States Proclamations of the Executive Organs Re-establishment and Determination of The number of bureaus may vary from region to region according to the Region s work volume and size. In accordance with this research, the selected offices are composed of the Cabinet bureaus, (the Executive organ - those directly accountable for the regional government), the Regional council (the Legislative organ) and the Supreme Court (the Judiciary organ). The powers and duties declared according to the regional states Constitutions and Proclamations for each are shortly discussed below. The Regional Council The Regional Council, being the legislative organ of the regional state, is the supreme organ of the state. It is organized to create checks and balance mechanism among the state organs, i.e., the executive and judiciary bodies within the regions. The regional council enjoys supreme political power in all internal affairs of the regional state. It issues various laws; establishes additional administrative areas within the limit of the regional state; ratifies agreements concluded with the neighboring regional states. 147

12 The Supreme Court The Supreme Court is one of the three state organs called the Judiciary organ which is established to interpret laws and regulations. The Judiciary power of the regional state resides solely and exclusively on the regional Judiciary. The Supreme Court decides the highest and final jurisdiction with regard to regional matters; reviews where the final decision rendered by any low level courts revealed to have fundamental error of law. Education Bureau Bureau of Education is one of the macro and cabinet bureaus of the social sector in the regional state established to take over the Ministry of Education in line with the decentralization process to enable the regions to carry out the social (educational) functions. Its main power and duties according to proclamation 2010 are preparing and implementing short, medium and long term strategic plans and programs of the regional state on the bases of the country s educational and training policy; setting standards for the educational institutions at all levels, follow up and oversee their compliance. The bureau also provides with access to quality and basic education by formulating various mechanisms in balanced and equitable manner; as well as open educational institutions from primary school through junior colleges, and fulfilling the necessary educational inputs for educational institutions and follows up their implementation. 148

13 Health Bureau Health bureau is one of the cabinet bureaus in social sector with the main power and duties, according to the proclamation, such as in line with the country s health policy and strategy preparing the healthcare plans and programs and implement them; organize and administer the health facilities; study research centers and training institutions found at all levels; supervising the drug supplies and medical equipment distained for use in the regional state; expanding the health infrastructure constructions and ensure that the necessary inputs fulfilled therewith; strive for the achievement of the Millennium development goals, as well as the prevention and control of HIV/AIDS, malaria and TB diseases. Civil Service Bureau The Civil service bureau is the cabinet bureau which is responsible for human resource management and related aspects in the regions. It is established to take over the Federal Civil Service Ministry in line with the decentralization process to enable the regions to carry out administrative functions. It studies and identifies the capacity gaps encountered and thereby facilitate conditions for fulfilling of such gaps; follow up and support over the formulation, revision and implementation of the reform (restructuring) programs and projects, and initiate policies; prepare laws and regulations and follow up the implementation of salary scales and various allowances as well as performance evaluation criteria applicable to the region s civil servants. 149

14 Further, the bureau records and maintains the particulars of the region s civil servants, compile the HR statistical information, put in place an effective and efficient information system and carry out studies and researches in various issues pertaining to human resource. It also entertains and renders decisions on appeals submitted to it by the civil servants in relation to their work. Women s, Children s and Youths Affair Bureau This bureau is the one of the cabinet bureaus which deals with the issues relate to women, children and youths. Its powers and duties mainly include initiating proposal with the view to enforcing the rights and interests of women s, children s and youth s in the regional state as well as devise implementation strategies; following and facilitating the opportunities for women and youths to actively participate in the region s political, economic and social endeavors; and coordinate the efforts undertaken to implement the national women s policy in the regional state. Agriculture and Rural Development Bureau The Bureau is also one of the cabinet bureaus in economic sector established to take over the Ministry of Agriculture in line with the decentralization process to enable the region to carry out the agriculture related functions. 150

15 It prepares and implements short, medium and long-term strategic plans and programs of the regional state based on the country s Agriculture-led policy and strategy; and availing extension service and technical support to the farmers. It also follows up and supervises over the distribution of agricultural inputs in a desired quality. Furthermore, it establishes and directs training institutions and centers assisting the acceleration of agricultural development and improvement of the rural technologies; expands and administers the crop, animal and rural technology multiplication centers available in the regional state as well as cause the establishment of the newer ones, and the likes. Water Resource Development Bureau The bureau of water resource development is also one of the cabinet bureaus having wide duties and responsibilities such as studying the regional reserves of water resource and its distribution, and devising mechanisms enabling to utilize the regional water resources in a sustainable and reliable way and follow up their implementation. It also promotes the supply of potable water both in urban and rural areas, undertaking of newer study, design, improvement and expansion works as well as construction. Moreover, it also renders professional support to enable potable water supply facilities constructed in urban and rural areas for sustainable and reliable services; and roots the implementation of the water resource management laws, regulations and directives issued by both the federal and regional government in the regional state and the likes. 151

16 Trade and Transport Bureau Bureau of Trade and Transport bureau is also one of the cabinet bureaus in the economic sector and carries out the tasks such as it follows up the trade activities undertaken in the regional state pursuant to the policies, laws and regulations; encourages the promotion of trade institutions in the regional state on the bases of the country s trade and investment policies and strategies. It registers issues and renews licenses to those domestic investors engaged in trade activities throughout the regional state as well as collect appropriate service fees. In addition, it provides necessary support to the collection, compilation, analysis and distribution of market and business-related information. It implements within the region, transport policies, strategies and programs by which the country and the region s transport service development is guided; it executes the procurement of government transport facilities; protects the security of roads of the region, etc;. Finance and Economic Development Bureau The Bureau of Finance and Economic Development Bureau (BoFED) is the cabinet bureau. It carries out core tasks such as preparing the long, medium and short term development plan to be executed by the regional government on the bases of the country s development strategies and follow up the implementation upon approval. 152

17 It also supervises the operation of the regional government bodies in compliance with financial policies, laws, regulations and directives. It examines the recurrent and capital budgets; gathers data enabling to prepare the consolidated annual budget, submit the draft budget to the regional state and administers when approved. It also prepares the annual revenue and expenditure accounts of the regional state; and establishes the account system of the regional state and supervises its implementation. It also signs, on behalf of the regional state, agreements concluded with regard to internal and external assistance, loans and projects, monitor and evaluates their implementation. It also undertakes surveying, mapping, and geographical studies of the regional state; evaluate the execution of the sectoral plan and thereby submit periodic reports to the regional government; and cause the implementation of the population policy, carry out studies and research. Administration and Security Affairs Bureau The Bureau of Administration and Security Affairs is also one of the cabinet bureaus that basically carries out administrative and security activities in the region. It follows up and ensures the maintenance of the law and order in the regional state, and the protection of peace and security of the community. It identifies the causes of conflicts, prevents their occurrences, and strives to resolve their emergencies, using traditional and contemporary conflict resolution mechanisms. It also looks into the armament and firearms purchasing requirements and carries out the procurement and inspection activities in collaboration with the pertinent bodies. 153

18 Justice Bureau The Bureau of Justice is also one of the cabinet bureaus that mainly conducts study and undertakes research as to the way in which the regional justice system will be improved, and it advises the regional government and institutions with regard to legal matters. It also carries out the activities of codifying and consolidating law of the regional state; directing and supervising over the prosecutors at all levels; facilitating the ways in which the flagrant offences might be decided in accelerated procedure in collaboration with the police force and other bodies; ensuring those persons confined in prisons, police cells, disciplinary centers and temporary detention facilities are properly handled and their rights are respected An Overview of HRD in Ethiopia To meet the ever increasing demands of the society, attracting, retaining and effectively utilizing of the existing manpower as well as developing the future ones is very vital, hence attention should be given to human resource development and the establishment of its climate. In Ethiopia, from early times up to now, different governments with different policies, rules and regulations came to power, and depending on the government s ideology the country s policies and strategies have been executed. Because of this the country s fate has been determined by the ruling party s attitude towards development. Based on the 154

19 ruling party s ideology the country s economic policy and strategies have been shaped and implemented, (Tenage, 2008). Ethiopia has a long history in human resource administration. According to the historical background of the Civil Service Commission of Ethiopia, the establishment of modern administrative system in Ethiopia had taken place during the time of Emperor Minilk II ( ) at the turn of the first decade of the 20th century. That marked the beginning of modern administration (the European style) in Ethiopia but it was not accompanied by personnel rules and regulations. The absence of such personnel rules and regulations led the administration of government offices to be based on the goodwill of each government official of the time, and it prevailed for about half a century. Later, Emperor Haile Selassie ( ) improved his predecessor's initiative both in qualitative and quantitative aspect and established the government organ called the Central Personnel Agency (CPA), with the defined rights and obligations, by the Order Number 23/1961 in Since then, central leadership under uniform personnel rules and directives were given to all public servants in the country. Then the Military regime ( ) came to power with socialist ideology, with a centralized policy and decision-making system. Consequently, the public sector (all civil service organizations) became highly centralized (the Civil Service Commission of Ethiopia, 2008). Although Ethiopia was among the few African countries that introduced Administrative Reform in the early 1960s, till 1991 all the civil service organizations (the public sector) 155

20 were highly centralized and the Agency was established to administer all government employees with unified rules and regulations. Since 1961 the Agency has gone through various development stages by restructuring and redefining as well as issuing the powers and duties of the agency. After the establishment of the new federal administrative system in 1991, the foundation of state governance has changed from a highly centralized apparatus to a decentralized federal structure (Tenage 2008), so that the powers and duties has been decentralized between the Federal and the Regional States; and in line with Federal State, the Civil Service Bureaus were established at Regional States by laying down their scope and functions. They are the existing responsible bodies for all matters related to civil servant or government employees as well as HRM aspects now. In 2000 the Federal government of Ethiopia developed five corporate policies and strategies, viz., Capacity Building strategy; Democratization policy; Foreign Affairs Policy; Agriculture and Rural Development Policy, and Industrial and Rural Development Policy, to alleviate poverty by establishing democratization and good governance that benefit the society. In line with these policies and strategies, various programs were developed. Among others the Capacity Building Strategy was taken as the corporate strategy for the implementation of other polices, strategies and programs. Among the programs, is the Civil Service Reform Program (having a number of reengineering and training programs) launched to facilitate changes and enhance the knowledge, skills and capacity of the 156

21 public servant mainly by addressing the problems that the civil service institutions are 'managed poorly and operating below capacity, (Ministry of Capacity Building, 2008). According to Ministry of Federal Civil Service Human Resource Statistics 2010 report, the statistics of permanent employees or civil servants in the country from 1962 to 2010 has increased from 46,701 to 854,316. Since 1991, after the establishment of current federal administration system, the employees number has also increased from 163,090 to 854,316. To ensure Civil Service Reform program in this massive number of government employees and make them contribute to the achievement of country s vision and sustain rapid and equitable economic growth, Federal and Regional states are making great efforts to change the employees attitudes, perceptions and working climate in the public sector. In line with the response to the nationwide scheme, the Civil Service Bureaus of the Amhara and Benishangul-Gumuz Regional states have been facilitating the processes of the implementation of the capacity building strategy and the civil service reform program since