In Tanzania, we first attempted to launch a public service reform programme in the context of structural adjustment programmes, where the main emphasis was on cost-cutting and cost containment measures within government. After seven years, the government had become more responsive to the public demand for better services. So, in the second-generation reforms launched in 2000 the objective was to translate the capabilities already available in the public sector into a broader capacity to manage change and to deliver better-quality services. The definition of capacity also had to be broadened in order to embrace all elements that would enable public servants to deliver as individuals working within organisations, and also working together to deliver as organisations.

Interventions

Capacity building interventions therefore took several forms. These included building technical competencies, changing the work ethos and the attitudes of workers, improving working environments (by redesigning facilities as well as policies), building team spirit, and addressing the motivational demands of public servants. Since Tanzania is still a poor country, all of these interventions were to be carried out in a seriously under-resourced situation.

In the design of the reform programme, the government adopted a management model that provided a strategic approach and a vehicle for building public sector capacity to deliver better-quality services. Under this performance improvement model, each ministry, department and agency was required to draw up its own strategic plan outlining how it intended to achieve its organisational goals, in view of the limited resources available. The model and its processes have been used in the public sector in Tanzania for five years, over which time both performance and standards of service delivery have improved significantly.

The model

At the start of the process each ministry, department or agency defines its vision and mission, and identifies the means for achieving them. It then assesses the extent to which its current functions and activities match the vision and mission. From there, agreement is needed on which functions and activities should continue, and which are to be discontinued. The next step is to define strategic performance measures and indicators with which to monitor progress. Thereafter each organisation is required to prepare a resourcing plan.

During the first year, baseline data on existing standards of service delivery are collected, based on which targets are set and future performance can be gauged. At this stage the plans are translated into annual outputs, together with activities required to ensure that those output targets are met. The organisations prepare the budgets required for carrying out the planned activities, and these are included in performance agreements that now form the basis of organisational and individual performance appraisals. To assist the ministries, the government hired teams of management consultants to take them through this arduous process on a sequential basis, a few ministries at a time.

The reform funding programme included a performance improvement fund to which various development partners contributed. Ministries, departments or agencies can access this fund for the procurement of services, including technical assistance, equipment or even training.

Those ministries, departments and agencies that adapted well to the reform process have significantly improved their capacities for service delivery. They also provided inspiration for others that lagged behind. The process has not only led to better public services, but has even created extra capacity to improve government processes, especially in relation to budgeting and monitoring outputs based on budget allocations.