Performance Management in Ghana's Local Government A Case Study of Ada East District ...

150 Pages·2016·6.41 MB·English

University of Ghana http://ugspace.ug.edu.gh
UNIVERSITY OF GHANA
PERFORMANCE MANAGEMENT IN GHANA’S LOCAL
GOVERNMENT: A CASE STUDY OF ADA EAST DISTRICT
ASSEMBLY.

BY

SOSU JUSTICE
(10302254)

THIS THESIS IS SUBMITTED TO THE UNIVERSITY OF GHANA,
LEGON IN PARTIAL FULFILMENT OF THE REQUIREMENT FOR
THE AWARD OF MPHIL PUBLIC ADMINISTRATION DEGREE

JULY, 2016
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DECLARATION

I do hereby declare that this work is the result of my own research and has not been presented by
anyone for any academic award in this or any other university. All references used in the work
have been fully acknowledged.
I bear sole responsibility for any shortcomings.

………………………… …………………….
SOSU JUSTICE DATE
(10302254)

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CERTIFICATION
I hereby certify that this thesis was supervised in accordance with procedures laid down by the
University

…………………………… ……………………
DR. KWAME ASAMOAH DATE
(SUPERVISOR)

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DEDICATION
I dedicate this thesis to my parents and my future wife and children for reasons I cannot find words
enough to fully express.

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ACKNOWLEDGEMENT
I am profoundly grateful to my supervisor, Dr. Kwame Asamoah of the Department of Public
Administration and Health Services Management for his guidance, helpful insights and
constructive comments as well as his patience without which this study would not have been
completed.
I also sincerely appreciate the invaluable support and cooperation of the staff and management of
Ada East District Assembly where data was collected. Again, a big thanks specially go to Haruna
Aminu Bawa and Awal Sulemana who supported me immensely.
Most especially, I am eternally thankful to God for His faithfulness and the gift of life to
successfully complete this study. Dear Lord, I am grateful!

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TABLE OF CONTENTS
DECLARATION ............................................................................................................................ ii
CERTIFICATION ......................................................................................................................... iii
DEDICATION ............................................................................................................................... iv
ACKNOWLEDGEMENT .............................................................................................................. v
LIST OF ABBREVIATIONS ....................................................................................................... ix
LIST OF FIGURES ........................................................................................................................ x
ABSTRACT .................................................................................................................................. xi
CHAPTER ONE ............................................................................................................................. 1
GENERAL INTRODUCTION ...................................................................................................... 1
1.0 Introduction ........................................................................................................................... 1
1.1 Background of the Study ...................................................................................................... 2
1.2 Statement of the Problem ...................................................................................................... 6
1.4 Research Questions ............................................................................................................... 8
1.5 Significance of the Study ...................................................................................................... 8
1.6 Scope of the Study ................................................................................................................ 9
1.7 Limitations of the Study ...................................................................................................... 10
1.8 Organisation of the Study ................................................................................................... 10
CHAPTER TWO .......................................................................................................................... 12
LITERATURE REVIEW ............................................................................................................. 12
2.0 Introduction ......................................................................................................................... 12
2.1.0 The Evolution of Local Government Administration in Ghana. ..................................... 12
2.1.1 Current Local Government System of Ghana .................................................................. 13
2.1.2 Legal Framework of Local Government Administration in Ghana ................................. 15
2.1.3 The Structure of Local Government in Ghana. ................................................................ 15
2.2 Emergence of Performance Management in Developing Countries ................................... 17
2.3 The Meaning of Performance within Public Sector Context .............................................. 19
2.4 Operationalising Local Government Performance. ............................................................ 23
2.5 Exploring the Definitions of Performance Management .................................................... 24
2.6 Performance Management in the Public Sector .................................................................. 27
2.7 Performance Management in Local Governments ............................................................. 33
2.8 Examining the Challenges of Performance Management in the Public Sector .................. 39
2.9 Using Performance Information for Decision Making ....................................................... 43
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2.10 Performance Appraisal and Performance Management: Conceptual Overview .............. 48
2.11 Probing the Merits of Performance Management ............................................................. 50
2.12 Conceptual Framework ..................................................................................................... 52
2.13 The Theory Underpinning Performance Management ..................................................... 57
2.13.1 Goal-setting Theory ....................................................................................................... 57
CHAPTER THREE ...................................................................................................................... 61
ORGANISATIONAL PROFILE AND RESEARCH METHODOLOGY .................................. 61
3.0 Introduction ......................................................................................................................... 61
3.1 Organisational Profile ......................................................................................................... 61
3.2 Research Approach ............................................................................................................. 64
3.3 Research Design .................................................................................................................. 65
3.4 Sources of Data ................................................................................................................... 66
3.4.1 Primary Data .................................................................................................................... 66
3.4.2 Secondary Data ................................................................................................................ 67
3.5 Target population ................................................................................................................ 67
3.6 Sample Size ......................................................................................................................... 67
3.7 Sampling Techniques .......................................................................................................... 69
3.8 Data Collection Instrument and Procedure ......................................................................... 69
3.9 Data Analysis ...................................................................................................................... 72
3.10 Ethical Considerations ...................................................................................................... 73
CHAPTER FOUR ........................................................................................................................ 74
DATA PRESENTATION AND DISCUSION OF FINDINGS ................................................... 74
4.0 Introduction ......................................................................................................................... 74
4.1 Preliminary Information of Respondents ............................................................................ 74
4.2 The Extent of Performance Management in the Ada East District Assembly .................... 76
4.2.1 Monthly Performance Review Meetings: Supervisor-Staff Interface ............................. 79
4.2.2 Quarterly and Midyear Performance Review .................................................................. 83
4.2.3 Mechanisms for Managing Staff Performance in the Assembly ..................................... 85
4.2.4 Performance Management and the Assembly’s Strategic Plan ....................................... 89
4.2.5 Performance and Rewards or Sanctions: Tracing the Link.............................................. 91
4.3 Challenges of Performance Management Implementation ................................................. 94
4.3.1 Logistical Constraints ...................................................................................................... 94
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4.3.2 Low Capacity of Personnel .............................................................................................. 98
4.3.3 Poor Monitoring and Supervision .................................................................................. 100
4.3.4 Poor Collaboration among Departments ........................................................................ 103
4.3.5 Undue Interference ......................................................................................................... 104
4.3.6 External Institutions ....................................................................................................... 107
4.4 Using Performance Information in Decision Making ....................................................... 109
4.4.1 The Need for Performance Information ......................................................................... 109
4.4.2 Task Assignment According to Strengths and Weaknesses .......................................... 110
4.4.3 Capacity Building Oriented Decisions ........................................................................... 111
4.4.4 The Preparation of Human Resource Plan ..................................................................... 112
4.4.5 Promotion-Based Decisions ........................................................................................... 113
4.4.6 Extra Work Assignment ................................................................................................. 116
4.5 Conclusion ........................................................................................................................ 116
CHAPTER FIVE ........................................................................................................................ 118
SUMMARY OF FINDINGS, CONCLUSIONS AND RECOMMENDATIONS..................... 118
5.0 Introduction ....................................................................................................................... 118
5.1 Summary of Findings ........................................................................................................ 118
5.1.1 The Extent to which PM is carried out in the Ada East District Assembly ................... 118
5.1.2 Challenges of Performance Management ...................................................................... 120
5.1.3 Using Performance Information in Decision Making .................................................... 122
5.2 Conclusions ....................................................................................................................... 123
5.3 Recommendations ............................................................................................................. 125
REFERENCES ........................................................................................................................... 128
APPENDIX I .............................................................................................................................. 134
APPENDIX II ............................................................................................................................. 136
APPENDIX III............................................................................................................................ 138

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LIST OF ABBREVIATIONS

AEDA Ada East District Assembly
CSPIP Civil Service Performance Improvement Plan
ILGS Institute of Local Government Studies
IRS Indirect Rule System
MDAs Ministries, Departments and Agencies
MMDAs Metropolitan, Municipal and District Assemblies
NPM New Public Management
NPMAC National Performance Management Advisory Commission
NDPC National Development Planning Commission
OHCS Office of the Head of the Civil Service
PM Performance Management
PNDC Provisional National Defence Council
PSC Public Services Commission
RCC Regional Coordinating Council
SHRM Society of Human Resource Management

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LIST OF FIGURES

Figure 1……………………………………………………………………………….....17
Figure 2……………………………………………………………………………….....53
Figure 3 …………………………………………………………………………………58
Figure 4………………………………………………………………………………….65
Figure 5………………………………………………………………………………….71
Figure 6………………………………………………………………………………….75

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