TABLE OF CONTENTS
CHAPTER ONE: INTRODUCTION
1.1 Background to the Study
1.2 Statement of Research Problem
1.3 Objectives of the Study
1.4 Research Questions
1.5 Research Hypotheses
1.6 Significance of the Study
1.7 Scope of the Study
1.8 Operational Definition of Terms
1.9 Limitation of the Study
CHAPTER TWO:
LITERATURE REVIEW AND
THEORETICAL FRAMEWORK
2.1 Introduction
2.2 Origin of the Nigerian Public Service
2.3 The Fundamental Principles of the Public
Service
2.3.1 Private-Public-Partnership in Lagos State
2.4 Conceptual Clarification
2.5 Current Literature on New Public
Management (NPM)
2.5.1 Overview of New Public Management (NPM)
2.5.2 Current Literature on Public-Private
Partnership (PPP)
2.5.3 Relevance of Traditional Model of Public
Administration
2.5.4 Managerial Programme (Elements to NPM)
2.5.5 Entrepreneurial Government
2.5.6 Good Governance: Concept and Application
2.5.7 What is Good Governance
2.5.8 Culture of Good Governance
2.6 Lagos State Strategies under
PPPs and NPM in the three
Agencies of the
Ministries
2.7 Theoretical Framework
2.8 Summary of Review
CHAPTER THREE: RESEARCH
METHODOLOGY
3.1 Introduction
3.2 Research Design
3.3 Study Area/Setting
3.4 Population of the study
3.5 Sampling Procedure and Sample Size
3.6 Data Source/Research Instruments
3.7 Validation of the Instrument
3.8 Techniques of Data Analyses
3.9 Limitations to the Methodology
CHAPTER FOUR:
DATA PRESENTATION,
ANALYSIS AND DISCUSSION
4.1 Introduction
4.2 Respondents Characteristics and
Classification
4.3 Presentation and Analysis of Data
According to Research Questions
4.4 Presentation and Analysis of Data
According to Test of Hypotheses
4.5 Discussion of findings
CHAPTER FIVE:
SUMMARY, CONCLUSION AND RECOMMENDATIONS
5.1 Summary
5.2 Conclusion
5.3 Recommendation
5.4 Suggestions for further study
Bibliography
LIST OF TABLES
Table 4.2.1: Summary of questionnaire administered
Table 4.2.2: Gender distribution of respondents
Table 4.2.3: Respondents in accordance to marital status
Table 4.2.4: Educational qualification of respondents
Table 4.2.5: Departments of respondents
Table 4.5.6: Respondents current positions in the
organization
Table 4.2.7: Analysis of respondents according to
duration of service
Table 4.3.1: Does the key bureaucratic features affect
public service delivery in
Lagos State
Table 412: The role of private
public partnership in service delivery in Lagos State
can be evaluated
Table 4.3.3: Does the new method effect on socio-economic
development in Lagos
State
Table 4.3.4: Is there any challenges and problems facing
the adoption of the New
Public Management Strategies (NPM)
Table 4.3.5: The lack of
transparency and accountability is Responsible for adoption
of PPPs and NPM policy
Table 4.3.6: Innovation and efficiency
saving is the primary reasons for PPPs
involvement in service
delivery in Lagos State.
Table 4.3.7: Lagos state government defined a transport
sector strategy with the
overall objective to
improve the provision of transport services
in the metropolitan area
in particular for the public transport users
and the poor.
Table 4.3.8: LAMATA co-ordinate the transport policies,
in Lagos State
Table 4.3.9: The reforms of the tax system is
establishing a key link between the
Payment of taxes and the delivery of service
Table 4.3.10: With greater
information on taxes, there has essentially been
an end, to arbitrary tax
levies being place on people by
unauthorized
organizations
Table 4.3.11: The use of a private sector company in the tax
system has bridged a
gap in expertise within
the tax authority
Table 4.3.12: LAWMA has a remarkable story in the history
of Lagos State and
continues to make visible
and contributory impact in the metamorphosis
in Lagos.
Table 4.3.13: LAWMA have amply
contributed economically by creating job
opportunities with over
25,000 staff that assures the environment of
good health
Table 4.4.1: Testing of hypothesis One
Table 4.4.2: Testing of hypothesis Two
ABSTRACT
The study identified the
key bureaucratic features that affected public service delivery, evaluated the
role of PPP in service delivery in Lagos State Civil Service and considered the
effect of the new method on socio-economic development in the state.
Primary and secondary
data were used in the gathering of relevant information. The primary data was
collected through the use of questionnaire and interviews to elicit information
from the respondents in ministries of Finance, Transport, and Environment. The
respondents were selected using the simple random sampling method. Secondary
data were obtained from relevant official documents, academic journals and
internet sources on Public-Private Partnership and the growth of New Public
Management in Lagos State Civil Service. The data collected for the study were
analysed using descriptive statistics, such as percentages, frequency
distribution, tables chart and inferential statistics, such as correlation and
correlation coefficient.
The results showed that
lack of transparency and accountability was responsible for the adoption of
Public-Private-Partnership and new Public Management policies, while innovation
and efficiency were the primary reasons for PPP involvement in the social
service delivery in Lagos State. It was also revealed that using ideas from
private sector had positive impact on the effective and efficient services on
the service commission.
The study concluded that
Public-Private-Partnership served as an essential component in the
establishment of a New Public Management in developing the public service in
Lagos State.
CHAPTER ONE
INTRODUCTION
1.1 BACKGROUND TO THE STUDY
The emergence of the New
Public Administration (NPA) as an alternative perspective to the traditional
public administration theory, is fast gaining ground in the Lagos State civil
service.
In the 1960s, the
government and its administrative arm came under heavy pressure from social and
political forces for a range of issues like civil rights, higher education,
social welfare, law and order, and urban infrastructure and condition. The
capacity of government to respond to these problems were questioned, particularly
by younger university-based members of the public administration community
(Oladoyin. 2010).
Public administration as
an academic discipline is changing rapidly under the impact of globalization,
the changing ideology of government and the resultant changes in the agenda of
public administration in all parts of the globe. Since World War II, the role
and function of government had witnessed an unprecedented increase in both
developed and developing societies. This was largely due to the fact that development
was considered as a state activity. Since the 1980s, the world has witnessed a
reverse swing; Globalisation is the name given to the paradigmatic shift of
emphasis towards a market-driven, private sector led 'development model whose
basic philosophy was to 'roll back the state.
Changes in public
administration today is largely the reflection of the changing nature of the
functions of government/especially in the developed world. (Oladoyin, 2010)
The practices of the
traditional public administration came under persistent attack from neo-liberal
economists, interest groups, theorists and public choice scholars, who have
spearheaded the philosophical arguments for reducing the size and spending of
the public sector. New Public Management (NPM) has done a lot to shakeup the
moribund and self-serving public organizations, often by using ideas from the
private sector. It provides many options for trying to achieve cost- effective
delivery of public goods, like separate organizations for policy and implementation,
performance contracts, internal markets, sub-contracting, and much more to
mention (Basu, 2010:37).). The catchphrase for this element is 'let managers
manage'. It recognizes that there is a need for professional management at the
very top and that those who hold these positions should be given substantive
responsibility for management - the achievement of clearly specified goals-
rather than being administrators whose function is primarily to administer
rules. (Olowu, 2002:3).
Governance and national
development is the end to which every government and civil society or
organisation strives. It is a situation of societal equilibrium with the
features of social equity, peace, existence of rule of law, free and fair
election, legitimate government and the existence of space for productive
activities.
This explains why modern
societies strive for good governance. Since the old public administration
techniques have failed, focus has then shifted to the adoption of management
concepts, theories and instruments such as were utilized in the private sector
to achieve effectiveness, efficiency, responsiveness to citizens' needs; all
with the view to promoting public value. (Sapru, 2008). According to Wikipedia
(2010), the Free Encyclopedia, NPM is a management philosophy used by
governments since the 1980s to modernize the public sector. NPM is a broad and very complex4erm used to
describe the wave of public sector reforms throughout the world since the
1980s. The main hypothesis in the NPM reform wave is that market orientation in
the public sector will lead to greater cost- efficiency for governments,
without having negative side effects on other objectives and considerations. (http://wikipedia.org
/wikLnewpublicmanagement 9/8/2010). Rather than continue
to use old nomenclatures such as administration, directors and secretaries, the
new paradigm suggests a change to public managers to describe those officials
now saddled with the responsibility of managing government business.
A strong U.S. position in
the global market place depends upon a strong partnership between the private
sector and the Federal/State governments, particularly when it comes to
standards and standards development (data wordiHp/Novl.02doc.January (2003).
In response to these
issues, Lagos State Government has defined a transport sector strategy with the
overall objective t improve the
provision of transport services in the Lagos Metropolitan Area in particular
for the public transport users and the poor. The strategy rests on the
following six pillars, creation of organizational and institutional capacity
for the planning and management of the state’s transport system; raising the
level of cost recovery in the: transport system; promotion of affordable public
transport services; reduction of adverse external impacts of transport through
the provision of safeguards; creation of a conducive environment for the
private sector provision of transport services; and making the best use of the
existing transport capacity.
Lagos State Internal
Revenue Service (LSIRS) is the operational arm of the Lagos State Board of
Internal Revenue (LSBIR). The agency came into being through the passage of a
bill which was presented to the Lagos State House of Assembly and assented to, by
the then Governor of Lagos State. His Excellency, Asiwaju Bola Ahmed Tinubu on
the 13hl of March, 2006. Lagos State Internal Revenue Service
(LSIRS) makes provision
for the Administration and Collection of Revenue due to the state government
and local councils.
The use of tax
consultants by government cannot be said to be an entirely new development. For
instance the Federal Inland Revenue Service has been engaging the services of
consultants in such specific areas as training, monitoring, evaluation, public
enlightenment, systems development etc. The argument had been in their use by
state government, for the functions of assessing, collecting and accounting for
taxes. Prior to the appointment of the consultants in the various states such
as Edo, Osun, Lagos and Ekiti both the tax officials and the taxpayers had a
field day in the interpretation and application of the existing laws.
(Oladoyin, 2010).
Lagos Waste Management
Authority (LAWMA) has a remarkable story in the history of Lagos State, and
till date, it still continues to make visible and contributory impact in the
metamorphosis in Lagos. As an organization created to achieve, LAWMA has not
only put to fore the cleanliness of Lagos but also unconsciously imparted self-
discipline in the lives of Lagosians. In addition, LAWMA amply contributed
economically by created job opportunities with over 25,000 staff that assures
the environment of good health. The importance of a strong partnership between
the private and public-sectors was strengthened in 1999 by the lively debate
over revision to privatization. The circular, which guides Lagos State
government agencies in their implementation of the State Technology Transfer
and Advancement Act, has helped to reinforce government participation in the
voluntary standard system. Strong working relationships continue with the
Departments of Finance, Transport and the Environmental Protection Agency
demonstrated their support for voluntary standards. Primary reasons for private
sector involvement include: innovation and efficiency savings; a means of
attracting new technical expertise and capacity: access to new capital and
investments that would not otherwise be available to finance costly infrastructure
investments, and an increase in revenue from a privatization that can be
utilized to retire debt and save interest (Brown, 2000:3).
The theory of New Public
Management (NPM) is not only an economic-based but also a consumer-oriented
approach (Naidu, 2006:39). The term 'management is preferred to
'administration' because management implies a decisiveness and proactiveness
that appear lacking in governmental administration. The term 'management' has
some aggressive action-orientation and is much more proactive-oriented than the
term, administration (Polinaidu, 2004:80).
1.2 STATEMENT OF RESEARCH PROBLEM
A lot of development and
changes have taken place in the management of Lagos State civil service and
conduct of government business in general. Innovations involving the synergy
between public and private sectors, methodologies and the setting of a more
proactive template for managing the activities within the public sector have
now taken place. The traditional public administration system which places
emphasis on hierarchy, continuity and stability, authority and centralization
of control, monopoly of service delivery by government and budget-driven
programmes that has failed to guarantee effective provision delivery and
welfare is now being gradually jettisoned. This failure of bureaucracies in
post-independence Nigeria has encouraged the emergence and popularity of the
New Public Management (NPM).
Lagos State
unquestionably has been the cynosure of all eyes as far as the fusion of public
and private competencies are concerned. In the areas of maintenance of public
utilities, transportation, security, catering and procurement of equipment and
materials, Lagos State government has demonstrated effective engagement of the
private sector organizations and individuals in partnership with the state as
far as the issues mentioned above are concerned. The attempt to unravel the
peculiar dynamics of the operations and challenges of these methodologies
captured within the concept of PPP and NPM constitute the focus of this study.
1.3 OBJECTIVES OF THE STUDY
The general objectives of
this study is to show how Lagos State government has been able to partner with
private sector organization in fostering effective provision, delivery and
maintenance of public goods and services toward statewide socioeconomic
development. However, the following specific objectives of this study an: to
(i) identify the key
bureaucratic features that affect public service delivery in Lagos State;
(ii) Evaluate the role of PPP in service
delivery in Lagos State civil service;
(iii) Examine the effect of the
new method on socio-economic development in the state; and
(iv) analyse the challenges and
problems facing the adoption of the New Public Management strategies (NPM).
1.4 Research Questions
In this research attempt
would be made to beam searchlight on the following questions
1. Are the bureaucratic features affect public service delivery
in Lagos State?
2. Could one evaluate
public-private partnership as an innovative management strategy in Lagos State
civil service?
3. What is the effect of the
new method on socio-economic development in Lagos State?
4. Is there any challenges and-problems facing the adoption of
the New Public
Management Strategies?
1.5 Research Hypotheses
This study is geared
towards testing the following hypothesis.
1. H0: The key
bureaucratic features do not affect public service delivery in Lagos State.
H1:
The key bureaucratic features affect public service
delivery In Lagos State.
2. Ho: There
are challenges and problems facing the adoption of the
Public-Private-Partnership and New Public Management Strategies.
H1:
There are no challenges and problems facing the adoption
of the Public-Private-Partnership New Public Management strategies.
1.6 Significance of the study
The study will enhance
the understanding of the New Public Management (NPM) which has done a lot to
shake-up moribound and self-serving public organizations, often by using ideas
from the private sector. The study will also be an addition to the growing
focus on private public partnership (PPP) in the public service, with its
effects on effective and efficient service delivery in the Nigerian Public
Service. The finding of this research will assist government and policy makers
to formulate policy that can enhance the entrenchment of ethics and
accountability, especially as it concerns service delivery and to achieve cost-effective
delivery of public goods in the public service.
The study will be a
benefit to the immediate community and the government/ research body by using
its novel approach and data as blue print for policy formulation and
implementation. Thus, this research will propose several new initiatives for
policy and advocacy through which NPM can be achieved in the society and
contribution to the development of theory. This study is also significant given
the fact that it will provide new ideas and knowledge on deficiencies
traditional public administration and the compelling need for a pragmatic
alternative. Besides other researchers and students in higher institutions,
most especially those in social sciences can derive various secondary data
sources from this study. Since every research work aims at discovering problems
and finding ways of solving them, this study cannot be an exception.
1. 7 SCOPE OF THE STUDY
Basically, this study is
a theoretical and practical examination of Public-PrivatePartnership and the
growth of New Public Management in Lagos State Civil Service between 2002-2010.
The study will be restricted to Lagos State civil servants in three strategic
state ministries and parastatals/agencies in Lagos State, where it is assumed
that New Public Management activities are practiced. These State Ministries
include; Finance, Transport and environment. The various agencies under the
state ministries will also be covered.
1.8 DEFINITION OF TERMS
The following key
concepts are defined for the purpose of this study:
New Public Management: Is a management
philosophy used by the governments to modernize the public sector.
Public Private
Partnership: Is the fascinating features of contemporary economic development as we move
into a new millennium is the way in which institutional reforms are breaking
new ground.
Globalization: Is a process and a means
to achieve the goals of globalism.
Civil Society: Third sector comprising of citizens and non-voluntary sector (first
sector is Government and the second sector is the private/business sector;
activities that engage individuals in recognizing their rights and
responsibilities as citizens within a democracy.
Corruption: Is an unethical behaviour which runs counter to the accepted social norms
and normal values.
Governance: Is the manner in which power is exercise In the management of a country's
economic and social resources for development. Governance is an exercise of
economic, political and administrative authority for managing a nation's
affairs at both micro and macro levels.
1.9 LIMITATION OF THE STUDY
The study was faced with
some constraints, which included time, financial and human constraints. Some of
the people slated for interview were not available and in some cases those
available were not forthcoming in discussing their views on the issues of
public private partnership in Lagos State. There were some difficulties in
having access to some of the records and documents, relating to the scope of
study due to 'official secret' or "confidentiality" practices in the
public service. The attitude of the respondents also constituted a serious
limitation to the study, as a new theory and concept many respondents does not
really understand the topic in order to give actual answer to it.
The study overcame the
constraints of the respondents through thorough explanation about the topic and
through some countries who practicalized it and successfully gained the aims
and objectives of the topic.
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