TRINIDAD AND TOBAGO

The Case for Public Sector Reform

Trinidad and Tobago:

The Case for Public Sector Reform

1. Background
1.1 Introduction to Trinidad and Tobago
THE REPUBLIC OF TRINIDAD AND TOBAGO is an archipelagic state located at the southern end of the

Caribbean island chain, approximately 10 kilometres northeast of Venezuela. It has a tropical climate, with a rainy season that lasts from approximately June to December. The country has a land area of 5,128 km2 and a population of approximately 1.3 million. The majority live in Trinidad, with Tobago estimated to have a population of 50,000. Trinidad and Tobago is noted for its ethnic and religious diversity: Just over 40% of the population is East Indian in origin; 39.5% is of African descent; and 18.4% "mixed". There are also small minority communities of White, Chinese, and Middle Eastern descent. Roman Catholics comprise 29.4% of the population; Hindus 23.8%; Anglicans 10.9%; Muslims 5.8%, and Presbyterians 3.4%. There are also sizeable Baptist/Shouter Baptist and Shango communities with African origins. English is the official language. Spanish, French and Hindi are also spoken. In September 2004, the Government designated Spanish as the First Foreign Language . 1.2 Trinidad and Tobago Governance Trinidad and Tobago gained independence from the United Kingdom in 1962. A republican constitution was adopted in 1976. The country's system of government is modelled after the Westminster system of the United Kingdom. The President is the constitutional Head of State, chosen by an electoral college comprising members of the Senate and the House of Representatives. The President is commander-in-chief of the armed forces, and has the power to appoint members to several agencies of the State, including the Election and Boundaries Commission, the Service Commissions, the Integrity Commission as well as the Auditor General and Ombudsman. Le gisla tur e Legislative power is vested in a bicameral Parliament, consisting of the Senate and the House of Representatives. The Senate's 31 members are appointed by the President: 16 on the advice of the Prime Minister, six on the advice of the Leader of the Opposition; and nine independent senators chosen directly by the President.
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Trinidad and Tobago:

The Case for Public Sector Reform

The current 36 members of the House of Representatives, each representing a geographically defined parliamentary constituency (34 in Trinidad, two in Tobago), are elected for up to five years by universal adult suffrage. A general election can be called by the President at the request of the Prime Minister or after a vote of no-confidence in the House of Representatives at any time during that period. On the recommendation of the Elections and Boundaries Commission, Parliament recently agreed to now have 41 constituencies (39 in Trinidad, two in Tobago). Ex ecuti v e The Cabinet, led by a Prime Minister, controls the Government, and is answerable to Parliament. As is often the case with many offshoots of the Westminster System, concentration of political power in Trinidad and Tobago resides within the office of the Prime Minister. This arises in large part from the fact that the Prime Minister has the discretion to make or rescind appointments for members of the Cabinet. The Cabinet comprises Members of Parliament as well as the Senate. Local Go v er nment The island of Tobago was granted its own House of Assembly in 1980 and given full internal selfgovernment in 1987. The Tobago House of Assembly (THA) has 15 members, of whom 12 are elected and three selected by the majority party. The THA is led by a Chief Secretary. The functions of the THA are subject to Section 75 (1) of the Constitution of the Republic of Trinidad and Tobago, which reserves responsibility for general direction and control of the Government of Trinidad and Tobago in the Cabinet. Trinidad currently has 15 local government municipalities, including nine regional corporations, two city corporations, three borough corporations, and one ward. Judiciar y The Trinidad and Tobago Judiciary comprises a Supreme Court and district courts. The Supreme Court consists of the High Court of Justice and the Courts of Appeal. The High Court is presided over by the Chief Justice, who is appointed by the President on the advice of the Prime Minister, and 10 other judges. Final appeal on some matters is decided by the Privy Council in London. However there is an intention that the Privy Council be eventually replaced by the newly created Caribbean Court of Justice. The district courts are presided over by a Chief Magistrate and seven senior and 18 other magistrates. T he Trinidad and Toba g o Pub lic Ser vice The Trinidad and Tobago Public Service is based on the British Colonial Service model established prior to independence. The Public Service upholds the tradition of political neutrality in the course of executing the policies of the administration of the day. The precise configuration of Ministries and Departments varies from administration to administration. There are at present 25 Ministries and three Departments in the Civil Service. Current Ministerial portfolios are listed on the Trinidad and Tobago Government website at: http://www.gov.tt/downloads/MinistersUpdateMay05.pdf.
Size of Public Service
Civil Service: Defence Force/ Protective Services: Daily Paid Workers: Teachers: Statutory Authorities: 32,000 16,000 25,230 15,000 3,900

Source: Personnel Department

A major challenge facing the Trinidad and Tobago Public Service is that many of its institutions, administrative systems and structures date from colonial days, and need modernization. At the same time, the overall culture of the Service is conservative, and in particular, leans towards maintenance of the status quo. This is further reinforced by a promotion system largely based on seniority. These tendencies considerably The CAPAM Senior Public Executive Seminar Cape Town, South Africa August 1-5, 2005 4

Trinidad and Tobago:

The Case for Public Sector Reform

contribute to the difficulty of planning and implementing a public sector reform agenda. 1.3 Economy The economy of Trinidad and Tobago is driven by the production of oil and natural gas and by various petrochemical downstream industries. The energy sector was responsible for 85.5% of merchandise exports, and 37.1% of Government revenue. Trinidad and Tobago is currently the largest exporter of natural gas to the United States of America, and is a major producer of ammonia, methanol, and urea.
MAIN ECONOMIC INDICATORS
2004
GDP-TT$71.88 billion (US$ 11.41 billion) Per Capita Income - US$ 8,800.00 Inflation Rate - 3.7% Unemployment - 10%
(Source: Ministry of Finance)

Major natural gas discoveries over the past 10 years mean that Trinidad and Tobago is undergoing a period of sustained economic growth that is expected to last for the next 10-15 years. For example, the Central Statistical Office estimated that the economy grew 13.2% in real terms in 2003 (coinciding with a major natural gas development coming online), and 5.7% in 2004. The petrochemical industry is capital-intensive and largely dependent on Foreign Direct Investment (FDI). As a result, government policy has consistently sought to diversify the country's economic base and to create sustainable employment for the majority of the populace who cannot find employment in the energy sector. Despite its importance to the Trinidad and Tobago economy, the energy sector only accounted for 3.4% of employment in 2004. The manufacturing sector has shown steady growth (6.6% in 2004), based on the domestic and Caricom markets. In this regard, emphasis has been placed on the development of the export manufacturing sector (Trinidad and Tobago has been extremely successful in exporting manufactured products to other member states of the Caribbean Community, less so in exporting to countries outside of Caricom). However, this position will be severely challenged with the advent of the Free Trade Area of the Americas which will not only bring bigger markets, but new rules of competition and more established competitors. The non-energy sector has grown at an average rate of about 3% per annum since 2001, but as at 2004 accounted for -9.1% of GDP. The agricultural sector is currently in decline, culminating in a 20.2% negative growth in 2004, largely due to the scaling down and restructuring of the sugar cane industry. The country's destiny is clearly in its own hands: competitiveness and sustainable development is the only option. Understanding of the economic realitites has led to a focused and deliberate path to increase competitiveness and capacity for sustainable development. Speaking at a conference on managing change in the Public Service after his return from Dubai in June 2005, the Minister of Public Administration and Information, Senator the Hon. Dr. Lenny Saith referred to Dubais decision to diversify its economy despite its abundant oil resources, noting unless we do it, in 2010 or 2020, we will still be behind everybody else. 1.4 Domestic and International Challenges Trinidad and Tobago is dominated by a capital-intensive energy sector, and is largely dependent on the rest of the world both for the importation of essential goods and services, and as a market for the country's oil,
The CAPAM Senior Public Executive Seminar Cape Town, South Africa August 1-5, 2005

Trinidad and Tobago:

The Case for Public Sector Reform

natural gas, energy and manufactured products. The country is consequently fully integrated into the globalized world economy. Much of Trinidad and Tobago's infrastructure, and many of its public sector systems and processes need modernization, either because they are outmoded and in need of replacement, and/or because they need to be adjusted in order to meet the demands of globalization, and the changing needs and requirements of its clients. The country is also noted for its considerable ethnic, cultural, and social diversity. While this diversity can make the task of engaging societal stakeholders extremely complex, the juxtaposition of quite different interest groups and perspectives offers the potential for exploring innovative solutions to societal issues. The need to reconcile the foregoing issues and challenges has led to the identification of a number of interrelated strategies and policies as being of critical importance: Developing a human resource base to produce a competent, productive and knowledgeable workforce; Diversifying the country's economic base in order to create sustainable employment and to reduce dependence on the petrochemical sector; Enhancing competitiveness to meet the challenges of globalization and liberation, and adopting environmentally sustainable development strategies to ensure long-term growth; Promoting a more equitable, cohesive, and harmonious society by reducing poverty, reducing societal imbalances, and increasing societal stakeholder involvement in the formulation and execution of national development policy and public management; The need to modernize and/or reengineer public management institutions, systems and processes in the face of changing needs and priorities; The need to address challenges to the security and stability of Trinidad and Tobago such as crime and drug trafficking; disaster preparedness and relief; and protection of the environment.

2. Public Sector Reform

2.1 The Context of Public Sector Reform Recent discoveries of major natural gas reserves suggest that Trinidad and Tobago will benefit in the short to medium term from a significant revenue windfall. Mindful of the inefficient allocation of resources during a previous "boom" period in the 1970s, the Government has articulated its intention to allocate resources in a manner which ensures the achievement of key social development goals as well as economic sustainability. Domestic Polic y Initia ti v es Currently, all government policy is led by the goal to achieve developed country status by the year 2020. The
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The CAPAM Senior Public Executive Seminar Cape Town, South Africa August 1-5, 2005

Trinidad and Tobago:

The Case for Public Sector Reform

process of translating this broad vision into specific policy initiatives is ongoing, and a Multi-Sectoral Committee comprising a variety of national stakeholders was established to articulate Vision 2020. Sub-policies include: public sector reform to ensure the delivery of high quality goods and services in a manner that efficiently meets the needs of clients; development of the Information and Communication Technology (ICT) Sector has the highest priority. A National ICT Strategic Plan was launched in November 2003, from which has been derived fastforward, the National ICT development strategy; and the Trinidad and Tobago energy sector, powered by foreign direct investment and the revenues from the development and exploitation of significant natural gas and petroleum deposits, is expected to provide the revenues to finance national development strategies, including the development of the Non-Energy Sector as a source of sustainable employment and as the longterm successor to the Energy Sector as the engine of growth for the national economy. Exter nal polic y consider a tions Domestic Trinidad and Tobago policy also reflects many of the ongoing initiatives and concerns of the globalized world community. Principal Dri ving Factor s f or Pub lic Sector Ref or m A modern public service that is high performing, client centric and flexible and where, as articulated by the UNDP, public resources and problems are managed efficiently and in response to the critical needs of society is seen as the major prerequisite to the successful achievement of Vision 2020, and by extension, all other national development policies. This enhanced public service will operate on the traditional principles of openness, accountability and transparency, but will rely heavily on public participation to ensure that the public policy initiatives are closely linked to the critical needs of the wider populace. The principal driving factors that have been identified as critical to the emergence of a modern public service are: the increasing and changing demand for services while ensuring high quality; the greatest possible efficiency of resource allocation and utilization through the modernization and, where necessary, the reorganization, reengineering and/or decentralization of core public management functions;
The CAPAM Senior Public Executive Seminar Cape Town, South Africa

International issues and trends of particular local significance

the United Nations Millennium Development Goals, which overlap many of the priorities of Vision 2020; developments in global ICT, in particular the deliberations in the World Summit on the Information Society, which have a close synergy with fastforward; the Caribbean Community (Caricom) integration movement, and in particular the emergence of the Caribbean Single Market and Economy (CSME) and its supporting organ the Caribbean Court of Justice (CCJ), which is likely to have a profound effect on Trinidad and Tobago governance and economy; the deliberations at international economic fora such as the World Trade Organization, the Free Trade Area of the Americas, and the ongoing European Union-Africa Caribbean Pacific Group of countries; and international security considerations such as international terrorism and drug trafficking.
August 1-5, 2005

Trinidad and Tobago:

The Case for Public Sector Reform

maximum Value For Money (VFM) from the goods and services acquired and provided by the Public Service; and a public service that operates according to the principles of good governance. 2.2 Strategic Component s of Public Sector Reform The Government has embarked on an ambitious programme of public sector reform and capacity building. A considerable number of individual projects effectively span the full spectrum of public sector services. More significantly, two strategic projects, the Public Sector Reform Initiation Program (PSRIP) and the fastforward National ICT Strategy, seek to establish the broad infrastructure and overhaul institutions in order to facilitate a culture of high performance and continuous improvement in a volatile environment. i) The Public Sector Reform Initiation Programme (PSRIP) The Public Sector Reform Initiation Programme (PSRIP) was launched in March 2004. It is a 36-month period of activities focusing largely on the reform of the Public Service. The PSRIP has been developed by the Government of Trinidad and Tobago and the Inter-American Development Bank to facilitate the development and implementation of a long-term strategy to reform the Public Sector. The Ministry of Public Administration and Information (MPAI) has been mandated to ensure that the Public Service is equipped with the requisite systems, skills, knowledge, culture and capacity to provide the highest quality services to the citizens of the country. The Ministry is responsible for implementing the reform programme. The PSRIP seeks to improve on past programmes by placing a high priority on intensive Planning for reform. This will involve in-depth analysis of the governance systems and institutions that are the core of public management systems and the engagement of all stakeholders in discussion on public sector reform. It is felt that this approach will enable the identification of risks to the reform, and the readying of the change agents and systems within the public service to manage and facilitate the reform, and provide a platform for sustainability of the reform effort. The specific objectives of the Programme are to: i) identify the issues for transformation of the Public Sector; ii) define a suitable, feasible and politically sensitive strategy for the transformation of the Public Sector; iii) facilitate widespread agreement and support necessary to implement such a strategy; and iv) develop basic management instruments and capacity to manage Reform.
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The CAPAM Senior Public Executive Seminar Cape Town, South Africa August 1-5, 2005

Trinidad and Tobago:

The Case for Public Sector Reform

The programme comprises two major components: Component 1: Development of the Reform Strategy Outcomes: Reduce the existing information asymmetries Increase the demand for reform Identify strategies to spread the cost associated with the reforms throughout time and across groups Promote widespread endorsement for Public Sector Reform Acti vities: Study for the identification of issues and policy options The development and implementation of the first phase of a national dialogue strategy The development and implementation of a communication strategy Training for key decision makers in economic policy and national strategy Establishment of a panel of experts to play a quality control role Component 2: Strengthening the Structural Capacity Outcome: Facilitate implementation of the reform strategy Acti vities: Information Gathering: Public Employment Data-Survey of Public Employees Information Gathering: Public Sector Data-Institutional Performance Data Information and Communication Readiness: Information Management Readiness Assessment Strategic Vision of the New Information environment Policy Framework for Government Information Legal Framework for Government Information Re-engineering of the Public Service Central Registry System Strengthening the HRM Systems at the Service Commissions Department to support the integration of IHRIS Development of a Compensation Policy Optimization of the Organization Structure and Change Management Capacity of the Ministry of Public Administration and Information Optimization of the Central Statistical Office Development of a Policy Position and Implementation Plan for Financial Management Reform Optimization of the Organization Structure and Change Management Capacity of the Public Administration Division of the Tobago House of Assembly (THA) Improvement of the Cabinet Decision-Making Process
The CAPAM Senior Public Executive Seminar Cape Town, South Africa August 1-5, 2005

Trinidad and Tobago:

The Case for Public Sector Reform

ii) fastforward and Information and Communications Technology (ICT) Initiatives

fastforward
The government, through the MPAI, has prepared a National ICT Strategic Plan. Government recognizes the close linkages between its Public Sector Reform Agenda and the NICT Strategic Plan, notwithstanding the fact that the latter is national rather than just public sector in scope. The Plan, which is now known as fastforward will assist as a contributor to national development and as a catalyst to development in other sectors and an essential enabler to the achievement of the Vision 2020. The objectives of the fastforward plan agenda are to: Provide all citizens with Internet access. Focus on the development of children and adult skills to ensure a sustainable solution and a vibrant future. Promote citizen trust, access, and interaction through good governance. Maximize potential within citizens and accelerate innovation to develop a knowledge-based society. The National ICT Plan can be viewed on www.fastforward.gov.tt The Telecommunications Authority of Trinidad and Tobago (TATT) With the proclamation of the Telecommunications Act on June 30, 2004, the Telecommunications Authority of Trinidad and Tobago (TATT) became the regulatory agency for the telecommunications sector. TATT will, among other things, implement a programme for the Liberalization of the Telecommunications Sector; address the procurement and establishment of an Advanced Automated Spectrum Management System, and develop a comprehensive dispute resolution framework. The Government Backbone The e-Government unit is currently overseeing the implementation of the Government Backbone, which will eventually connect all Government Agencies and Departments. The Unit is also designing a Government Portal to the Internet which will initially provide information online and subsequently provide Government services online. Based on the fastforward agenda, e-Government will also focus on Government Skills Development, e-Procurement and e-Revenue. iii) Other Public Sector Reform initiatives PSRIP and fastforward adopt a strategic approach to the issues of public sector reform and National ICT development. In addition, a number of other ongoing initiatives seek to address specific aspects of the Trinidad and Tobago public service reform agenda. These include: Local Government Sector Reform: In keeping with Vision 2020, the Ministry of Local Government seeks to establish systems that are comparable to those of first world countries. Thus local Government reform seeks, among other things, to promote meaningful decentralization and increase efficiency and effectiveness within the local government system; to promote greater citizen participation in the affairs of local Government bodies; and to ensure transparency, good governance, and accountability. The Central Audit Committee has been strengthened with additional staff and this Unit is expected to redouble its effort to promote greater transparency and managerial accountability in the Sector.
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Trinidad and Tobago:

The Case for Public Sector Reform

Health Sector Reform: Government is committed to the achievement of the objectives of the Health Sector Reform Programme which are in keeping with the Vision 2020 Macro Development Policy. To strengthen the health delivery process, a number of technical assistance projects are being implemented to support the operationalization of effective service delivery systems at the existing and newly constructed health facilities. In keeping with the Reform Programme, new policies, standards and management information systems will be introduced. The Ministry of Health will continue its programme of human resources development to ensure the provision of adequate numbers of trained personnel at public health facilities. To effectively support the reformed health care system, the training of medical personnel included medical scholarships, completion of training and commencement of training for various professions in the field. Transportation Sector Reform: A fully functional, modern, national transportation system is key to the economic and social well being of any country. The Government will undertake preparation of Comprehensive National Transportation Study (CNTS) for Trinidad and Tobago, seeking to develop a national transportation sectoral policy. Agriculture Sector Reform: Government considers the development of the agriculture sector to be critical to the overall sustainable socio-economic development of Trinidad and Tobago. Government's goal is to revitalize the sector, provide an adequate level of national food security and food sovereignty, and enhance the sector's role in social and economic development. The Agricultural Sector Reform Technical Assistance Programme provides assistance in the areas of Sectoral Policy, Public Administration Reform, Land Use Policy and Administration and Agribusiness Development. Another programme is the Youth Apprentice Programme in Agriculture which introduces youths to technical knowledge and skills in specialized areas of agriculture. Education Sector Reform: Government has demonstrated its commitment to the ongoing development of the human capital of Trinidad and Tobago through its many initiatives to provide accessible quality education to all children. These initiatives are consistent with the Government's vision of making Trinidad and Tobago a developed nation by the year 2020. Government had ranked education as its top national priority. The focus of investments was expansion and upgrade of facilities and the reform of the various curricula at all levels, along with the reform of streamlining of systems and institutions towards a coherent and seamless education system. Training was a high priority sector with a two-year programme of leadership training of 40 persons in order to build capacity within the ministry as well as ongoing training of 208 persons in different fields. Significant advances were made in implementing the Government's decision to introduce the University of Trinidad and Tobago which is mandated to develop industry-ready graduates, promote innovation and facilitate enterprise for wealth generation and sustainable job creation. In an effort to align the strategic direction of education system with the objectives set for national development, Government will seek to decentralize and restructure the Ministry of Education. The main objective is to achieve better organizational performance, better management of schools and a higher level of effectiveness throughout the system.

The CAPAM Senior Public Executive Seminar

Cape Town, South Africa

August 1-5, 2005

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Trinidad and Tobago:

The Case for Public Sector Reform

Financial Sector Reform: Financial sector reform is one of the most critical projects of the government as it aims to achieve developed nation status by the year 2020. To this end a Green Paper on Financial Sector Reform was developed and Government invited public comments on a range of proposals for comprehensive reform of the various sectors and institutions of the financial system, including the banking sector; the capital market; the insurance industry; the pension system; the mutual fund industry; the credit union sector and the Venture Capital Incentive Programme. A White Paper, which sought to refine and strengthen the Green Paper, was developed and laid in Parliament in July 2004. The vision of the White Paper is to make Trinidad and Tobago the Pan-Caribbean Financial Centre of the ACS Region. This Centre will be globally competitive, well diversified, responsive and market-driven and would provide the widest possible range of financial products and services for international and regional business, domestic and regional small and medium-sized enterprises as well as the general public and private sector. Trade Sector Reform: In line with Government's objectives of diversification and growth of the economy, the transformation, development and expansion of the non-petroleum sector will remain in focus over the medium term, with continuing emphasis on the manufacturing, services and agricultural sectors. Government will continue implementation of the institutional strengthening component of the Trade Sector Support Programme to more effectively administer its portfolio and thereby improve international trade performance. The Programme will seek to strengthen the human resource capacity of the Ministry of Trade and Industry through its specialized technical training components, and to create a Trade Information Network, as it improves the country's technical and institutional capacity to formulate and implement trade policy and to participate more effectively in trade negotiations and enterprise development. In addition, policies and strategies will be implemented in fiscal 2005 to engender a more competitive and resilient manufacturing centre and commercial, trans-shipment and financial hub of the Caribbean and gateway to Latin America. 2.3 Developing the Public Sector Reform Cap acity i) Enhancing the Reform Capacity The Trinidad and Tobago Government is also attempting to develop the systems and processes that are needed to support its public sector reform agenda. These include: Change Management: There is recognition that behaviour change is necessary for the success and sustainability of reform initiatives. In this regard, the management of change has emerged as a critical issue. Experience has shown that managing large-scale system change within the public service is an extremely complex and long-term undertaking, which is not made easier by the fragmentation of responsibilities, for eg. with the Human Resource Management function. Consequently, implementing change requires the investment of a great amount of time and effort in achieving buy-in and coordinated action. In the mid 1990s, the strategy for facilitating change was through the use of change agents in government agencies. However, the persons selected were required to carry out the duties of their substantive posts, in addition to their new responsibilities for change management. This system had minimal success. The lesson has been learnt this time around.
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The CAPAM Senior Public Executive Seminar Cape Town, South Africa August 1-5, 2005

Trinidad and Tobago:

The Case for Public Sector Reform

The Ministry of Public Administration and Information has introduced a dedicated cadre of change agents called Newsystems Facilitators, whose major focus will be the implementation of the e-government system and utilization of the Public Service Employees Survey (referred to below at item ii) results, as well as assisting in the design, delivery and implementation of agency specific change management activities.

Whose NSF is it anyway?

The NSFs have a direct reporting relationship to the PS/Head of Department of the agency to which they are assigned. However, as a group, they report to the PS, MPAI by whom they have been employed. This matrix reporting system has caused some degree of unease among line agencies and the MPAI has sought to clearly define and delineate areas of accountability of the NSF.

The first ever Public Service Change Management Given the increasing movement towards joint Conference was held from June 1-3, 2005, and brought delivery systems, this aspect of the NSF system will provide invaluable learnings for the together a mix of staff from all Ministries and Departments management of matrix reporting systems. to identify, analyze and, where appropriate, to recommend strategies on critical change issues, both specific to their organizations and common to the public sector. Approximately 260 officers representing 25 agencies of Government, attended the Conference. To date, 10 agencies have indicated that they have either set up, or are in the process of setting up change teams. An assessment of the reports submitted from six agencies, showed general agreement on the following as critical:
Need to work differently, whether because of client expectations, technology advances, or environmental issues; Need to have structured change management function and dedicated change teams; Need to have executive will, leadership and support in the management of change; Need to understand the role and function of agencies; Improving internal communication: suggestions for help desks, e-notice boards, change information in newsletters; Need for training in the use of technology, and the need to use technology to increase effectiveness; and Need to become more client-focused

The urgent resolution of the issues identified at the Conference will emerge as a key enabler or threat with the coming onstream of the Government portal. As this portal will be oriented toward clients and life services, it will require all Ministries and Departments to rethink and reorganize their outputs in these specific terms. It will require them to network and collaborate with each other to present a single point for the delivery of government services. Monitoring and Evaluation (M&E): The MPAI supports the view that monitoring and evaluation (M&E) is critical to effective public sector management, but that M&E activities are limited. It should be noted that the already challenging task of coordinating and harmonizing the different programmes that make up the countrys public sector reform agenda is made more complex by the unusually diverse nature of Trinidad and Tobago public sector stakeholders. The MPAI is thus planning an initial M&E Stakeholders conference from Sept 06-10, 2005, to sensitize and engage major public sector stakeholders. Prime Minister's Innovating for Service Excellence Award Scheme: The Prime Ministers Innovating for Service Excellence Award Scheme, which was established in November 2004, showcases innovative projects in a number of government Ministries and Departments. The Scheme thus seeks to recognize and encourage a culture of innovation and creation in the public service which is considered to bye a key component in the achievement of national development strategies.
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Trinidad and Tobago:

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ii) Enabling Evidence-Based Policy Formulation Three initiatives have been established to improve citizen and stakeholder feedback on government and the provision of public services, and thus to provide for evidence-based policy formulation. They are: The Opinion Leaders Panel: The Government is of the view that a system for providing consistent feedback from a representative sample of the population on government service delivery would give policy makers the necessary information to either modify their current service delivery approach or revise strategic objectives, as required. The Ministry of Public Administration and Information has therefore engaged the services of well known international consultants, Market and Opinion Research International (MORI), to assist with the development and operation of a mechanism for obtaining citizen feedback. The resulting Opinion Leaders Panel Survey is a feedback mechanism to foster a system of performance based management in the public service. Survey results can be found at www.opinionleaders.gov.tt Since 2002, the MPAI in collaboration with MORI, has conducted five waves of research. One key focus of these surveys has been citizen perception of the delivery of public services. From the baseline survey, conducted between July 15 to August 29, 2002, the top two descriptions of public services has been "slow" and "poor service" both selected by 27% of the population. "Unsatisfactory (20%)", "inadequate (18%)", "under funded (16%)" and "impolite (14%)" also fall within the top 10 descriptions. Over the period 2002-2005, there has been a continuous flow of research data to the Executive, Permanent Secretaries and the general public with the major objective of a review of service delivery, where applicable. However, in early 2005, "poor service" is still the top word used to describe public service delivery with even a higher percentage of the population (50%) describing the service as poor as compared with those interviewed in the baseline survey. Please see the graph at left for a comparison of perceptions in 2002 and 2005. In terms of specific service delivery, the research shows that health related issues, for example, continue to be seen as one of the most important issues facing the country. Access to the health service is seen as the main priority to improve the country's overall wellbeing. This may be related to perceptions of long waiting times, as this is one of the major reasons for dissatisfaction with hospitals, as explored in Wave 3 (December 2003). Many people also place a strong emphasis on preventative care, particularly on education, as a priority for the
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future. HIV and Aids is seen as the fifth most important issue facing the country. Overall, though, the public remains optimistic that the health service will improve over the next few years. This optimism has increased slightly since December 2003. See below.

The Public Service Employee Survey (PSES): Improved organizational performance is highly unlikely without input from employees, given the direct association between employee satisfaction and organizational performance/client satisfaction. Thus any effort to create value for the client must take the employee perspective into account. One key reform initiative is the Public Service Employee Survey. This survey was designed to gather the views and opinions of all persons employed in the Public Service. It addressed issues such as: employee perception of the public service; job satisfaction; core values of the Public Service; perceptions of senior management; internal communications systems, human resource management issues.
STRENGTHS WEAKNESSES Advocacy of Public Service as both employer and provider of services Poor awareness and understanding of corporate objectives & initiatives Low satisfaction with salary and benefits impacts job satisfaction Line managers support, feedback and consultation Access to appraisal, training and promotion opportunities One in three feel unfairly treated Access & credibility of information

The first phase of the Survey, which was conducted in June 2004, focused on monthly paid employees in the Civil Service; 46% of public officers responded to the promotional tag line "Have Your Say, Make a Difference". The results of this initial survey constitute baseline data which will be monitored as the reform efforts continue to be implemented and evaluated.

Commitment to Public Service and its aims is high Very supportive of change and Vision 2020 Want to be involved Job satisfaction is average Work-Life balance though some issues among certain groups Line managers seem to be good at getting the job done

A second phase which was carried out in June 2005, common strengths and weaknesses in the Public Service. addressed the concerns of the Defence Force and Protective Services. Results of this survey will be released in mid-August 2005. Similar surveys will be conducted for the teaching service, statutory authorities and daily paid workers. Policy Networking Forum (PNF): The Public Service Transformation Division of the Ministry of Public Administration and Information is responsible for guiding, providing operational support for and monitoring and evaluating transformation initiatives of the Public Service of Trinidad and Tobago. The
The CAPAM Senior Public Executive Seminar Cape Town, South Africa August 1-5, 2005

The Public Service Employee Survey revealed most

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division has established a Policy Networking Forum for research, policy, planning and project personnel that allows for collaboration and sharing of ideas to facilitate sustainable policy development. Main objectives of the project include: o To provide a learning environment for research, policy, planning and project personnel in the public service to network and share information and experiences; o To collaborate in determining the public service research agenda; o To improve programmeme and project planning and implementation skills by providing opportunities for collaboration on modern techniques in project planning, implementation and evaluation; o To provide an opportunity for research, policy, planning and project personnel to keep abreast of technologies that can improve their business functions; and o To improve the capacity of public officers to formulate, implement and evaluate public policy. iii) Strengthening Key Support Institutions The Trinidad and Tobago Government seeks to strengthen institutions critical to the implementation of its public sector reform agenda. The development of effective national and government ICT infrastructures and the development of the requisite public service IM systems and human capacity have already been discussed under the fastforward and PSRIP sections respectively. Other institutions identified as critical support are: The Central Statistical Office (CSO): The availability of accurate data is considered by many to be a prerequisite for effective policy formulation and monitoring and evaluation. In this regard, a high priority has been placed on the restructuring and upgrading of the Central Statistical Office; and The Public Service Academy: The Public Service Academy is responsible for maximizing the human potential of the Public Service for excellence through the provision of policy advice to Cabinet on strategic HRD and presentation of flexible and relevant learning opportunities in collaboration with strategic partners. An integral part of the MPAI's strategic vision is the development of the Public Service Academy into a Public Service Corporate University/College which would endorse and accredit the training programmes and packages needed by the Public Service. Project IhRIS: As part of its programme to promote and embed strategic Human Resource Management systems and practices, government has introduced an Integrated Human Resource Information System (Project IhRIS) to automate and ultimately transform HRM processes within the public service. The introduction of this system, using PeopleSoft, was seen as critical to improving the interaction between central and line agencies and for providing managers with real time data for improved decision making The first phase of the project focused on automating HRM processes. The next phase will add payroll functions to Project IhRIS. 2.4 Previous Public Sector Reform Ef fort s Current reform initiatives should be viewed in the context of previous experiences at public sector reform that have been attempted since the 1960s, soon after independence. These include: The Lewis Report (1964) which looked primarily at the terms and conditions of public servants and at establishing career paths for public sector employees;
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The Dolly Report (1970) which focused on institutional strengthening and streamlining of public service practices and procedures, highlighting over-centralization, fear of change, and the lack of effective disciplinary and performance appraisal systems; The Administrative Improvement Programme (1975, a UN Project), which also highlights weaknesses in the performance appraisal system and in the training of supervisors; Proposals for Improvement of Efficiency in the Public Service (1981, Committee of Permanent Secretaries), which called for delegation of authority in financial and personnel matters; The Report of the Public Service Review Task Force (1986, also known as the Dumas Report), which found the appraisal system inadequate and was also concerned about the levels of training and planning in the Public Service, and the Administrative Reform Programme (1989, UNDP/CARICAD), which sought to implement many of the findings of the Dumas Report; The Draper Report (1992), which sought to transform the Human Resource Management function in the Public Service. There is a consensus that while much valuable work has been done on the identification and analysis of problems, most of these initiatives have ultimately been of limited effectiveness. Among the factors that have been cited as contributing factors in this regard are: The tendency for many of previous initiatives to be "siloed" in that they have for the most part focused on specific issues, functions, or departments in isolation, rather than seeking to adopt a holistic approach to the problem at hand; A general lack of success in addressing the complex change management implications of public sector reform. It must also be emphasized that the ICT and Globalization processes which make the change management problematic are even more complex and challenging; Weaknesses in Human Resource Management which stem from a fragmented approach and a lack of comprehensive effort. There also exists a lack of effective disciplinary systems; inadequate performance management systems; promotion through seniority rather than merit; inadequate staff compensation; a lack of systematic staff development and training; and a lack of HRM Strategic Planning in the face of the challenges imposed by national Development Strategies and Priorities and globalization;
Since 1995 a new Performance Management System was introduced into the Public Service. The thrust of the system of performance appraisal which it embodies is to: focus on the employee's performance rather than on traits and characteristics. reinforce strengths, identify deficiencies, and feed such information back to employees in order that they may improve their performance. In essence, it is a tool for more effective management of a Ministry's/Department's human resources. However, to date there has been little success with the implementation of the system. As a result in July 2004the Commission decided to grant amnesty to Permanent Secretaries and Heads of Departments allowing them until March 31, 2005 to provide the Director pf Personnel Administration with Honour Certificates attesting to the work, conduct and performance of officers under their supervision up to December 31, 2004 instead of the normal performance appraisal reports. This amnesty has however met with limited success. The Public Service Commission is now giving attention to the very relevant issue of accountability on the part of Permanent Secretaries and Heads of Departments in relation to their duties and responsibilities under the Civil Service Regulations.
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Institutional Weaknesses, such as a bottom-heavy staff structure that has large number of clerical and secretarial and relatively low numbers of professional/technical staff; inadequate and inefficient and resource allocation and utilization; Inadequate systems and/or use of modern public management practices such as strategic Planning, a lack of effective policy coordination and harmonization mechanisms, systematic Monitoring and Evaluation; and a tendency to concentrate more on delivery of outputs rather than on outcome effectiveness Governance issues such as a insufficient and inadequate consultation with stakeholders, both internal and external; race and diversity issues; a culture of risk aversion. 2.5 Political Commitment The Trinidad and Tobago Government places the highest priority on public sector reform. For example, Prime Minister Manning, in his address at the Prime Minister's Innovating for Service Excellence Award Scheme in November 2004, indicated that: "the country's economic engine will not be fully powered without a transformed Public ServiceThis is true of all nations, many of which are presently engaged in the reform and reinvention of Government with the aim of increasing competitiveness and improving the delivery of services to the citizenry" A modern and efficient public service has been consistently identified as a Critical Success Factor for the achievement of Vision 2020, and a number of policy statements have emphasized the importance of modernizing public sector institutions during the current period of sustained economic activity, when resources are most likely to be available, and the support exhibited for the reform initiatives cited above provide ample evidence of the government's willingness to provide the resources necessary to implement the reform agenda. Government has made a concerted effort to treat with issues of overlapping functions through the setting up of inter-ministerial teams to deal more effectively with the achievement of national policy objectives. Public/private partnerships and committees have been set up to facilitate improved policy making and to resolve implementation issues. There has also been commitment to increase citizen participation and "voice" in the affairs of government: through the opening up of the telecommunications sector: The granting of 35 licenses to date has facilitated the establishment of several new radio stations and at least one new community television station. This has encouraged and enabled the public to openly express their views and concerns with regard to a wide variety of national topics and issues; the creation of the government website, www.gov.tt; As part of the policy development process, when the government hosts Public Consultations and/or publishes Green Papers to allow for widespread feedback and stakeholder participation.
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3. Key Challenges to Public Sector Reform

3.1 Implement ation Issues A number of factors have been identified as negatively affecting the effective policy formulation and planning and also the efficient delivery of government services. These factors include: Structural Issues: The structure of the public service, in part a legacy of the old colonial public service, is a tendency for public sector agencies to be somewhat "siloed" in function and outlook, with each individual Ministry or Department guarding its own territory or jurisdiction. This situation is sometimes exacerbated by the existence of overlaps or inconsistencies in the allocation of Ministerial or Departmental roles and responsibilities, which can encourage interagency rivalry. Issues of Turf and Autonomy: A closely related issue is the extent to which issues of turf and autonomy can negatively affect public sector performance. In this regard it should be noted that a sub-committee established by the Vision 2020 Steering Committee to analyze the issue of Governance in Trinidad and Tobago identified the tendency to hide or hoard information, and a lack of policy coordination and harmonization as core issues affecting the public sector. Financial Management and Procurement: The financial management system of the public service is based on an accounting methodology, with a premium placed on the minutiae of accounting for small sums of money, often at the level of cents. The resulting system can be painstaking and time-consuming, which can make the task of financial management and timely execution of public sector reforms extremely difficult. A particularly challenging area in this regard involves the procurement of goods and services, which often require the establishment of long-term relationships with private sector agencies that are increasingly unwilling to conform to tortuous and lengthy government financial regulations. The reform of Government procurement systems has therefore been identified as a major priority. This issue becomes doubly challenged when projects are financed by external funding agencies and two sets of procurement procedures are required to be followed. Reform Fatigue: The issue of Reform Fatigue is evident in both the wider society and within the Public Service. Evidence of this fatigue has been tracked over time, with particular regard to the achievement of the goals of Vision 2020, and is illustrated above.
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It is evident that the population is divided about whether Vision 2020 will be achieved, however the rise in pessimism (red) and the fall in optimism (green) over the two years is unmistakable. In 2003, 39% of the population though it would be "fairly likely" to achieve the vision however this percentage fell to 28% in 2005. Through conducting focus groups from January 2005 to April 2005, it was found that 47% of participants attributed their pessimistic outlook to "no signs of progress so far", while 36% attributed it to "just political talk". It has therefore been deduced that lack of signs of progress seems to be key reasons for pessimism. The following comment was made by a member of the public with regard to Vision 2020 during a focus group session: "Do you realize how many of these phrases come and go and nothing happens?" There is need to promote wide spread endorsement for Public Sector Reform through the development and implementation of a national dialogue strategy as well as the development and implementation of a communication strategy. Both of these strategies recognize Reform Fatigue as a current and real challenge. The aim is to diminish both Reform Fatigue and its negative effects through identifying and implementing projects that will bring "quick wins" as well as developing effective communication strategies to provide feedback on results. Internally, the Public Service has also looked at sharing information through existing networks of groups such as Communications Officers, the Policy Networking Forum, the New-systems Facilitators, the Human Resource Practitioners' Forum and the Information Technology Practitioners Forum. These have all been introduced with the aim of capacity development, information sharing, network building, in order to reduce reform fatigue. 3.2 Financial Resource Issues The implementation of the PSRIP is estimated at a total cost of six million two hundred and fifty thousand dollars of (US$6,250,000). The Inter-American Development Bank (IDB) entered a loan contract with the Government of the Republic of Trinidad and Tobago, with the agreement to provide financing of up to the amount of five million dollars (US$5,000,000). The government will finance the additional one million two hundred and fifty thousand dollars (US$1,250,000). With the agreement of this contract,there are no issues of a lack of affordability as the source of funds had been secured. The MPAI continues to work with the Ministry of Finance and the IDB to ensure the timely release of funds.

3.3 Personnel Management Issues Fragmentation of the Human Resource Management (HRM) function Responsibility for the human resource management (HRM) function is now divided among four agencies: i. The Personnel Department has responsibility for determining and/or advising on pay and other terms and conditions for a wide spectrum of public sector employees. The Department is also responsible for policy formulation in the sphere of Human Resource Management and is the
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advisory, consultative and monitoring agency for Human Resource Management Units throughout the Public Service. ii. The Public Service Commission is independent of the Public Service and has responsibility for appointment, promotion, confirmation, transfers, discipline and removal of public officers. The Service Commissions Department is the administrative arm of the Public Service Commission. iii. Three divisions of the Ministry of Public Administration and Information affect or influence the HRM function. The Public Management Consulting Division is responsible for strategic direction setting and position management in Public Service. As such it works with Ministries and departments to design appropriate structures to facilitate the work of the Public Service. The Public Service Academy is the central training agency which evaluates the design of the training plans of agencies and monitors their implementation. The Academy also develops intervention strategies for training gaps and for new areas of focus of the Public Service. The Scholarships and Advanced Training Division manage the award of all development scholarships offered by government and works with Public Service agencies towards effective placement of returning scholars. iv. The Pensions Branch, Treasury Division (a branch within the Ministry of Finance), is responsible for the general administration of pension matters. This fragmentation can make the task of conceptualizing and implementing strategic human resource management practices extremely challenging. It should also be noted that Human Resource Management Units have been established within most Ministries and Departments and are responsible for day to day HRM. However to date, the envisaged positive impact has not been realised. Uncertainty in the execution of devolved functions, inadequate HR capacity, reliance on central agencies and the continued existence of parallel personnel administration positions have resulted in increased bottlenecks. Performance Management Organizational Performance Management Systems: The implementation of an integrated performance management system across the public service is seen as critical to achieving improved government performance and thus enhanced delivery of quality public services. It facilitates good governance practices within the public sector by increasing accountability and transparency in the professional conduct and promotion/advancement of public officers. It also provides the opportunity to recognize and reward excellent performance, identify the development needs of individual employees and dissuade poor performance. It focuses on improving performance through better results from the organization, teams and individuals by understanding and managing performance within an agreed framework of planned goals, objectives and standards. There are several reasons for this focus: o o The rising expectations for value for money, quality and timely services; The increasing demand for greater accountability;
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o o o o

The dynamic environment which calls for a new Public Management Culture as well as recognition of employee's contributions; The need to foster a culture that is performance oriented; The need for optimising scarce resources; and The competitiveness agenda of the country on the international front.

The Public Service is in the process of developing an organisational performance management system, and is now reviewing the results of its pilot phase which involved the development and implementation of performance frameworks in three Ministries. At this time however, performance is evaluated on the basis of use of budgetary allocations. Additionally, Ministries and Departments are required to submit quarterly status reports on their performance to the Prime Minister. Additionally, all State Agencies must submit annual reports to Parliament, appear periodically before its Joint Select Committee to report on their performance and to be questioned by JSC members. Members of the public also utilise the Freedom of Information mechanism to monitor the activities and/or decisions of state agencies. Other Personnel Management Issues The competency based approach for selection has been developed due to a lack of succession planning which has been made difficult as a result of the fragmented HRM function. In 2004, enhanced recruitment and selection mechanisms using assessment centre processes commenced for Deputy Permanent Secretary Positions, with the assistance of Public Service Commission of Canada. Activities in 2005/2006 will include additional assessment operations, competency-based training and development programmemes and structured competency-based interviewing. This reform of moving towards a competency approach is to ensure the right "fit" between individuals and their respective posts. This framework is expected to secure future leaders to work in the Public Sector. Through the use of competency based recruitment and selection the service will move towards its goal of eliminating the use of seniority-based hiring. Activities in 2005/2006 will include additional assessment operations, competency-based training and development programmes and structured competency-based selection. This reform of moving towards a competency approach is to ensure a better match between individuals and their respective posts. Compensation Policy: The Personnel Department continues its efforts to improve remuneration packages for Government employees. In order to achieve Vision 2020, it is essential that the Public Service to be in a position to compete for the best talent available in the country. Taking into consideration the strategic goals of the Public Sector Reform Strategy a compensation policy suitable to attract, motivate and retain adequate personnel is a critical success factor. Job Evaluation Project: The conduct of the Job Evaluation Exercises is another means of achieving a current and properly functioning Public Service. Such exercises have been completed for the Police, Fire, Prison and Teaching Services.
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The Civil Service exercise is currently underway. This Service operates on the basis of a classification and compensation system established in 1966. As a result the jobs are hierarchical in nature and are reflective of the work place of their era. It is expected that the job evaluation exercise will: target jobs for obsolescence integrate jobs to reflect the realities of a modern work place identify new areas in which the civil service should be functioning pay appropriately

Communication: Through the use of the results from the survey of public employees, information will be obtained to craft an evidence-based strategies to increase job satisfaction, motivation and ultimately performance within individual agencies and across the public service as a whole. Human Resource Development: The Government has also taken a decision to reintroduce its Public Service Development Programmeme to provide government scholarships to public officers thereby improving human resource capacity. The Scholarship and Advanced Training Division is taking a proactive approach in its research and HRD assessment needs. 3.4 Monitoring and Evaluation (M&E) Monitoring and Evaluation (M&E) is seen as an essential component of good governance, since it is an essential tool that enables government strategies and programmes to be reviewed and/or modified to ensure that interventions are relevant, effective and at all times cost efficient. As indicated earlier, M&E activities in the Trinidad and Tobago public sector are perceived as limited: although a number of agencies are mandated with M&E responsibilities, there is as yet no systematic M&E framework that could provide a strategic context for such initiatives. Further, many M&E activities that do exist on paper are not currently fully functional. Agencies with M&E responsibilities Public Sector agencies with M&E responsibilities include: The Office of the Prime Minister is spearheading an initiative to develop a performance management framework (PMF) for Ministries and Departments. Three pilot Ministries have been identified for implementation of the PMF: the Ministries of the Attorney General, National Security, and Tourism. The Cabinet Secretariat has primary responsibility for monitoring the implementation of Cabinet decisions. The Ministry of Finance has primary responsibility for monitoring all aspects of government expenditure based on annual budgetary allocations; produced the Social and Economy Policy Framework 2005-2007; and has also pursued implementation of output based budgeting within the last two years; The Ministry of Planning and Development (MPD) has primary responsibility for monitoring implementation of the Public Sector Investment Programme (this process is however essentially expenditure driven rather than output or outcome focused). The MPD is also Government's lead agency for monitoring achievement of Vision 2020 and the Millennium Development Goals; The Ministry of Social Development has primary responsibility for monitoring and evaluating the
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social sector. The Ministry has developed a policy framework on M&E for the social sector and several accompanying manuals detailing guidelines for users; The Ministry of Health is responsible for establishing national health policy and monitoring and evaluating health services delivery; The Ministry of Local Government is mandated to monitor and evaluate the performance of local government agencies; The Ministry of Foreign Affairs (MFA) has responsibility for the managing the conduct of Trinidad and Tobago's external relations. Much of the country's foreign agenda is executed through 16 Overseas Missions (OSMs). The MFA is responsible for the M&E of OSMs through an appointed Inspector of Missions, and also in conjunction with the Auditor General's Department (see below) which performs regular audits of overseas offices. The Ministry of Public Administration and Information has primary responsibility for monitoring the efficiency and effectiveness of Government Ministries and Departments. The Auditor Generals Department is an autonomous state body mandated by the Constitution to carry out audits of the accounts, balance sheets and other financial statements of all enterprises that are owned or controlled by or on behalf of the state. Audited reports are submitted annually to the Speaker, the President of the Senate and the Minister of Finance. These reports are subsequently laid in the Senate and the House of Representatives. The Office of the Ombudsman is an independent office, the principal functional of which is to investigate complaints of administrative injustice by members of the public. In pursuance of this mandate, the Ombudsman, among other things, consults and makes recommendations to various authorities regarding administrative policies, practices and decisions. The Police Complaints Authority receives complaints from the citizens on their interaction with Police officers and is responsible for investigating these complaints and providing remedies as necessary. Its annual report to the Parliament provides information which can aid in the assessment of the effectiveness of the Police Service. Assessment of Trinidad and Tobago M&E Practice It is clear from the foregoing that several Ministries and Departments have responsibilities for review, audit, and monitoring and evaluation within the Public Service. However, two key learnings that can be inferred from the environmental scan are that: Public Sector agencies have a tendency to operate in silos. Many agencies essentially operate in isolation of each other, resulting in a fragmented approach to M&E across the Public Service that promotes duplication. Many of the potential benefits that could be derived from collaboration are therefore not realized. Building evaluation capacity (e.g. the provision of citizen and public employee feedback mechanisms) is not in itself sufficient for the creation of an evaluation culture. Many of the structures necessary for M&E are in place, albeit often in a relatively embryonic state. However, greater attention must be placed on the attended processes that will promote the effective functioning of M&E systems and create the enabling environment for the emergence of an M&E culture
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A realistic assessment of M&E capacity in the public sector suggests that the capability and systems to monitor and evaluate policy, programme and project implementation ranges from weak to non-existent. For example, a skills audit of key social sector Ministries completed by the Public Management Consulting Division in 2002 indicated a dearth of evaluation skills in all agencies reviewed. This situation is further exacerbated by the lack of an evaluation culture that would encourage reflection on the extent to which policies and programmes have been effectively and/or efficiently implemented; on whether projected outputs and/or outcomes have been realized; and on how a particular policy or programme is integrated with the broader national development context. The evaluation focus of the Public Service to date has been primarily expenditure oriented. As a result the decision-making process within both central agencies and line ministries generally lacks the required evidence to support or refute resource allocation choices. In an era demanding openness, transparency and accountability, the Government of Trinidad and Tobago can ill afford to perpetuate a system of resource allocation that is perceived to operate by "whim".

3.5 Leadership The Public Service has found itself at curious crossroads where the reality of frequent and volatile change , new directions in governance and the country's declared intention to become "first world" by 2020 are juxtaposed with outdated and unaccommodating conventions, gaps and misalignments that collide to challenge even the most competent, creative and eager public officer. As indicated earlier, advancement in the public service is usually based on seniority rather than on merit. There is also no consistent process for providing the training and development necessary to executives for leadership positions, with the result that senior public servants receive little or no exposure to the systematic training and development that would prepare them to function effectively as leaders and executive managers. One of the consequences of this system is a tendency for many senior managers to be committed to maintaining the status quo, and to be extremely reluctant to make difficult decisions - a major liability for the successful implementation of public sector reform initiatives. There is also no system for identifying persons with the requisite potential and preparing them for leadership positions, although a current project to use an Assessment Centre is being used to shortlist persons for a new position of Deputy Permanent Secretary. The need has been identified for the development of strong professional networks and linkages among Public Service employees that would encourage teamwork and a collective approach to problem solving. On the executive side, many politicians are appointed as government ministers without significant prior knowledge or experience of the Public Service or exposure to the complex world of public administration. There is therefore a need to provide ministers with similar training and exposure to the skills and tools that would enable them to function effectively as executive decision-makers. Concurrently, senior public executives must expand their traditional role of administrator to become change leaders. Training then must lead to new or sharpened competencies that enable relevant responses to challenges. These leaders should
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demonstrate competencies including visioning, transitioning expertise, change management, communicating, commitment building, and change ownership. However, leadership cannot be limited to the executive offices. Systems and culture must also facilitate the recognition and nurturing of leadership at all levels to transform the public service into an institution of excellence.

Conclusion
Public Sector Reform Initiatives have been undertaken in Trinidad and Tobago since the early 1960s. The majority of these attempts have been relatively effective at identifying issues and problems, but largely ineffective at successfully implementing and/or sustaining change. Trinidad and Tobago's current national development policy, in particular the objective of achieving Developed Country Status by the year 2020, is currently providing the impetus for another major public sector transformation agenda. Although a considerable number of diverse initiatives are ongoing, two projects, the Public Sector Reform Initiation Programme and the fastforward National ICT Strategy, are of particular importance for their potential to make significant and frame breaking impact. Although both projects are in their early stages, the Government recognizes that success will depend in large part on the adoption of a holistic approach that allows for the consultation and engagement of all significant public sector stakeholders. This case study is a stepping stone in the creation of a training programme for senior executives which is needed to address themes of: Improved organizational performance and service delivery Customer responsiveness Stakeholders/network and communication management Environment scanning Risk management Strategic visioning, operational delegation.

Ministry of Public Administration and Information July 9, 2005

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Bibliography
Draper, G (1992). Public Service Reform Ministry of Finance, 2004, Social and Economic Policy Framework 2005-200, Vision 2020, Ensuring Our Future Survival. A Publication of the Ministry of Finance, Port of Spain. www.finance.gov.tt Prime Minister Mr. Patrick Manning, (2004). The Prime Minister's Innovating for Excellence Award Ceremony. Riley, B. & Nunes, M. (2004). Public Sector Reform Programmes and Performance Management in Trinidad and Tobago. The Public Sector Reform Initiation Programme - Project Document. Opinion Leaders Panel: Baseline Report, Market & Opinion Research International (MORI). Opinion Leaders Panel 2003: Wave III Report, Market & Opinion Research International (MORI). Report of the Statutory Authorities Service Commission, October 2003 to September 2004, Government of the Republic of Trinidad and Tobago. Report on the Review of Exercise of Delegated Powers by Permanent Secretaries of the Public Service of Trinidad and Tobago, February 2005, Submitted to Public Service Commission, By ODYSSEY CONSULTinc. WEBSITES www.gov.tt/downloads/MinistersUpdateMay05.pdf www.fastforward.gov.tt www.opinionleaders.gov.tt www.foia.gov.tt www.finance.gov.tt

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