Local Government Staff Performance Management in Tanzania: Experience of Open Performance Review and Appraisal System (OPRAS) in Kinondoni Municipal Council

This part examines the challenges encountered in the implementation of OPRAS in the public service at KMC. In so doing, interviews and questionnaire as well as documentary review solicited the following challenges encountered in implementation of OPRAS in the public service as follows:-

The findings revealed that, insufficient OPRAS training to employees in the KMC is one of the challenges encountering the implementation of OPRAS. This was demonstrated by all 100 (100 %) of all 100 respondents. An insufficiency in provision of OPRAS training to employees as it was found in this study can be linked to multiple interpretations in the context of OPRAS implementation in the public service at KMC, one being employees' loss of morale in implementing this tool due to lack of knowledge on how to use it properly and hence become reluctant in filling OPRAS forms.

It also demonstrated by 90 (90 %) percent that lack of management commitment in monitoring the implementation of OPRAS in the KMC is the other challenge encountering the implementation of OPRAS while 10 (10 %) did not state any challenge. The organization top management is so instrumental in determining the success of any public sector reform initiative [8]. In other words, the success or failure of any change initiative in organizations depends on the extent that the organization management is determined in implementing such change. In that regard, laxity of the management in monitoring the implementation of OPRAS in the KMC provides justifiable grounds for ineffective running of this performance tool and thus the expected results may not be realized.

Another challenge as stated by respondents indicated that in KMC 60 (60 %) out of all 100 respondents as presented in table 12 cited the financial resources deficit as a major challenge in implementation of OPRAS in KMC (see table 12). Conversely, 40 (20 %) respondent said that the financial resources deficit was not a challenge to implementing OPRAS in KMC. These findings are presented in Table 12:

Table 12. Responses on financial deficit as a challenge to the implementation of OPRAS in KMC

Source: Field data (April, 2020).

The findings presented in table 12 are supported by documentary evidence from the KMC Revenue and Budget Reports for the financial years 2008/2009 to 2017/2018. The financial deficit is confirmed by the trend in the Central Governments disbursement of grants to KMC as presented in table 13:

Table 13. Trend in central government's disbursement of grants to KMC

Source: KMC's Revenue Collection Reports (2008/2009-2017/2018).

The revenue pattern depicted in table 13 indicates that the grants from the Central Government still constituted a large amount of the funds covering its expenditure. However, the Central Government funds disbursed were inadequate for some of the financial years. Sometimes, the disbursement of funds was delayed which hindered the following up and implementation of OPRAS. For example, KMC Revenue Collection Reports (2019; 2018) note that in 2008/2009, KMC got 77 % of its budgeted revenue from Central Government grants, indicating a deficit of 33 % which limited OPRAS implementation in KMC. The findings indicate that from 2008/2009 to 2017/2018, it did not collect all the revenue budgeted for which impinged on effective and efficient OPRAS management. For example, in 2008/2009, the budgeted amount to be collected was Tshs. 3,261,000,000.00/=, but the actual amount collected was Tshs. 1,743,950,369.00/= or 53 %. In 2009/2010, the budgeted amount to be collected was Tshs. 5,052,573,979.00/= but the actual amount was Tshs. 3,914,141,219.00/=, equivalent to 77 % and in 2013/2014, the budgeted amount to be collected was Tshs. 62,661,106,227.66/= but the actual amount was Tshs. 34,187,515,338.99/=, equivalent to 55 % [20].

The findings corroborate with KMC revenue Collection Report (2018) which notes that in the 2017/2018 financial year, the actual amount collected was only 51 %, indicating that the revenue not collected amounted to 49 %. The revenue collection pattern shows that KMC encountered a deficit in revenue collection which caused financial constraints which hindered effective implementation of OPRAS.

From the findings discussed above, two things can be noted. First, the tendency of not setting specific budget for OPRAS training as it appears in the council Medium Term Expenditure Framework implies that the government does not give due and desirable attention for the implementation of OPRAS in the public service.

Also, the discretionary power given to the Chief Executive Officers in determining the type of training as set in the council budget may implicitly hinder OPRAS training as it may not be the priority for the council. So much so, the insufficient OPRAS related training to employees in the KMC as found out above may spring from this aspect.

Conclusion, recommendation, scope for further research and research limitations

It is therefore, concluded that this study makes a profound contribution to the empirical literature on OPRAS as it reveals circumstances which hinder effective implementation of OPRAS such as inadequate funds and low involvement of employees in the implementation of the OPRAS at KMC. Furthermore, this study also contributes to knowledge on the subject of performance management especially on the challenges hindering effective implementation of OPRAS and it serves as a reference and basis for further research. More significantly, it provides an understanding of the efficacy of OPRAS in LGAs such as in KMC, and beyond because the results of this study show whether or not OPRAS implementation is a management strategy to improve performance in local governments in Tanzania.

Although the application of OPRAS in the public service is intended to build a result- oriented performance among public servants, the study found out that its implementation is weak because there was no communication of the needs for OPRAS to employees, provision of OPRAS related training, and motivations to public servants were inadequately addressed. Furthermore, in LGAs particularly KMC, there has been very little concern, demonstrated by inadequate funds, and mechanisms set, in ensuring that its implementation is effective and sustainable. In regard to this, findings demonstrated absence of viable efforts in terms of plans and strategies set to establish an effective and sustainable implementation of OPRAS in the KMC. The financial constrains caused by absence of specific budget for OPRAS implementation and laxity of the management in monitoring an implementation of OPRAS in the KMC as well as poor revenue collection and inadequate funds disbursed by the central government to KMC are the major factors restraining an effective implementation of OPRAS in KMC. This is demonstrated by insufficient OPRAS training provided to employees, non-timely filling of OPRAS forms by employees, non-reliant on OPRAS results in making decisions related to employment affairs like promotions and carrier development, poor dissemination/sharing of OPRAS objectives to employees.

Recommendation