Public Administration – SS2 Government Lesson Note (First Term)

The civil service is the essential department of the executive arm of government through which the government carries out its policies and programmes. It turns policies into services for the people and is organised into ministries. Civil servants are career staff recruited on merit, and bodies such as the Civil Service Commission and the Ombudsman help to control them.

Behavioural objectives

By the end of the lesson, students should be able to:

1. explain the meaning and characteristics of the civil service;
2. describe the classes that make up the civil service and state its functions;
3. identify the problems of the civil service and the ways it is controlled;
4. state the main elements of the 1988 civil service reforms;
5. state the composition and functions of the Civil Service Commission;
6. state the functions and limitations of the Ombudsman (Public Complaints Commission).

What is the civil service?

The civil service is an essential department in the executive arm of government through which the government implements its policies and programmes. It turns government policies and programmes into services for the people. It is divided into departments called ministries. The political head of a ministry is called a Minister or Commissioner, while the administrative head is called a Director General or Permanent Secretary.

What are the characteristics of the civil service?

1. Permanence in office: Civil servants are career government employees who are employed under a merit system in which federal character is applied. They enjoy a permanent tenure of office. Governments come and go but the civil service remains. This enables civil servants to carry out their functions.
2. Political neutrality: This means that civil servants remain loyal and dedicated to whichever government is in power. They are not allowed to engage in partisan politics. Although they may belong to a political party and vote in elections, their views are private and should not affect their loyalty to the government of the country.
3. Impartiality: This means that civil servants should discharge their duties without bias or favour.
4. Anonymity: This means that the credit or failure of any administration on any issue does not go to the civil servants. They are also not allowed to speak to the press on issues unless their minister or directors authorise them.
5. Merit: This means that recruitment into government offices is based on merit and not favouritism. This enhances efficiency.
6. Expertise: Civil servants are expected to be experts in their fields and the offices they occupy.
7. Framework of law: This checks the use of arbitrary powers.
8. Hierarchy: This refers to the organisation of the system in different levels of importance, from the highest to the lowest.

What is the structure of the civil service?

The civil service is classified into the following:

1. Administrative class: This is the highest class of the civil service. It consists mainly of the Director General, Deputy Director General, Principal Officers and others. They are mostly graduates and they coordinate the activities of their ministry by policy making and by advising ministers and commissioners.
2. Executive class: They deal with the day-to-day conduct of administration following laid down policies. They also implement government policies. They consist of Assistant Executive Officers, Semi-Executive Officers and Executive Officers.
3. Professional class: They are trained specially for their jobs. Examples include lawyers, doctors and engineers.
4. Clerical class: They are involved in the routine jobs of the service. Their jobs include keeping records, moving files, preparing vouchers and compiling statistics. They are mostly young school leavers with SSCE, GCE, NECO and similar certificates.
5. Auxiliary class: Recruitment into this class of workers may not require any formal education or high technical skills. However, such skills might be required to do their jobs. Such jobs include drivers, cleaners, gardeners and messengers.

What are the functions of the civil service?

1. Formation of policy: The administrative and professional classes of the civil service formulate policies because of their wealth of experience. They present these policies to the ministers for final decision and implementation.
2. Implementation of public policies: The implementation of public-oriented policies results in services to the public such as good roads, electricity, schools and hospitals.
3. Preparation of the budget: The civil service prepares the government’s yearly budget, which is a statement of expected revenue and expenditure.
4. Making byelaws: Civil servants perform sub-legislative functions. A senior civil servant has the power to draw up rules and regulations.
5. Archival function: Civil servants document government policies and information and keep them safe for future reference in public decisions.

What are the problems of the civil service?

1. Low incentives: Poor conditions of service reduce the morale of the workers. This is made worse by the slow promotion process. An issue that needs urgent attention may not be met at the needed time.
2. Negative attitude to work: Most civil servants feel that government work does not deserve their best. They do their work half-heartedly.
3. Political interference: Governments often interfere by not giving the civil service a free hand to run its affairs. Many politicians also interfere with the planning and implementation of government policies.
4. Tribalism, nepotism and favouritism: Many unqualified persons are employed because of ethnic affiliations.
5. Political instability: Frequent military interventions affect policy making and implementation, because directors general, permanent secretaries, ministers and commissioners are changed.
6. Bribery and corruption: Many civil servants receive bribes and undue gratification for work done.
7. Lack of qualified personnel: The civil service is hit by the exodus of workers who seek greener pastures in private companies that offer attractive working conditions.
8. Unfriendliness of the staff: Many civil servants are arrogant and take excessive power to themselves. They are unfriendly to the public and are often impatient in listening to complaints from the public.

How is the civil service controlled?

The civil service and civil servants can be controlled in the following ways:

1. Legislative control: Ministers or commissioners can be asked to appear before the legislature and explain their activities.
2. Public Service Commission control: This body has the power to appoint, promote, transfer, discipline or dismiss civil servants.
3. Control by ministries: The ministries of finance and establishments have control over the other ministries in the civil service. They control expenditure, conditions of service, salaries and personnel.
4. Press control: The press also helps to control the activities of the civil service. It criticises erring officers and this keeps them in check.
5. Judicial control: The courts can try any civil servant on criminal charges, and public officers are aware of this.
6. Hierarchical control: The civil service is structured so that an officer cannot carry out actions without letting his superiors know.
7. Pressure groups: They help to mount pressure on public officers to the line of other ministries.
8. Public Complaints Commission (Ombudsman): This body receives and investigates complaints from the public about a public officer who has not performed according to laid down rules.
9. The General Order: This is the regulation which outlines the conditions of service and responsibilities of civil servants.

What were the 1988 reforms of the civil service?

The government of Ibrahim Babangida carried out a reform of the civil service in 1988, in line with the review panel headed by Dotun Philip, which was established in 1985.

The major elements of the reform were:

1. Ministers, and not the permanent secretary, are responsible for the policy and programmes of the ministry. The minister is accountable for his ministry’s actions.
2. The permanent secretary becomes Director General and his appointment is political. His tenure ends with the government that appointed him.
3. The civil service is professionally oriented, with each civil servant spending his career in one ministry.
4. Each ministry is responsible for the appointment, discipline and promotion of civil servants under it, under the federal service guidelines.
5. The civil service is now given various responsibilities.
6. The Central Bank and the Ministry of Budget and National Planning are placed under the office of the presidency.
7. The office of the Head of Service ceases to exist.
8. Each ministry has the power to set up its own personnel management board.

What is the Civil Service Commission?

The Civil Service Commission is an independent body set up by the government with the responsibility of recruiting workers into the service based on merit. The body is also in charge of the discipline, promotion and dismissal of workers. The president or the governor appoints the chairman and members.

Composition of the Civil Service Commission

The 1989 constitution of Nigeria provides for the establishment of the federal civil service commission. Section 51 states that its composition should consist of a president or chairman and a maximum of 9 members.

Functions of the Civil Service Commission

1. Employment: The commission has the power to recruit highly qualified personnel into the civil service, either by competitive examination or by oral interview.
2. Promotion: The body is responsible for the promotion of workers from one salary scale to another when they are due for it.
3. Transfer: The commission transfers civil servants from one ministry to another within the civil service.
4. Discipline: The commission has the power to take action against any civil servant who goes against the rules of the General Order.
5. Retirement: The commission retires civil servants who have reached the stipulated retirement age.
6. Dismissal: The commission dismisses civil servants who are found to be corrupt.
7. Conditions of service: The commission states the terms and conditions of service, allowances and salaries of civil servants.
8. Advice: The commission advises the government on the appointment of senior officers in departments and ministries.
9. Efficiency: Efficiency and integrity are the watchwords of the civil service, and the commission works towards achieving them.

What is the Ombudsman (Public Complaints Commission)?

The Ombudsman, known in Nigeria as the Public Complaints Commission (PCC), is a government institution established to investigate and examine cases of injustice, corruption and unfair treatment of citizens by public officers. It was first introduced in Sweden in 1809. It was introduced in Nigeria in October 1975 by the military administration of General Murtala Mohammed.

Functions and importance of the commission

1. It ensures that public officers discharge their duties in line with the laid down rules.
2. It protects the rights and liberties of citizens.
3. It investigates cases of maladministration by any public officer.
4. It has the power to suggest changes in the laws of the land.
5. It investigates undesirable conditions and practices in public places like hospitals and prisons.
6. It has the power to investigate any acts of corruption and nepotism.
7. It presents public officers and authorities who have violated the law and neglected their duties.
8. It investigates cases of loss of documents and papers.
9. It helps citizens whose rights have been infringed upon to seek redress.

Limitations to the powers of the Ombudsman

1. The Ombudsman does not have the power to enforce its findings. It can only investigate and recommend.
2. It cannot investigate top government officials like the Director General or a State Governor. It can only be involved in matters affecting junior workers.
3. It lacks the power to reverse court decisions.
4. The need to preserve state security and vital national interests limits the commission’s access to information and documents.
5. Lack of confidentiality in the Ombudsman’s work is also a limitation.

Evaluation

1. What is the civil service?
2. List five characteristics of the civil service.
3. Name the five classes of the civil service.
4. State four ways in which the civil service is controlled.
5. State four functions of the Civil Service Commission.

Assignment

1. Discuss five problems of the civil service.
2. State five functions of the Ombudsman.
3. List four major elements of the civil service reforms.