report of the committee on public service in one

2014 National Conference
Report
of the
Committee on Public Service
Submitted
to the
Conference Secretariat
on
May 15, 2014

2014 National Conference: Report of the Committee on Public Service Page i
Contents
Subject Page
Transmittal Letter …………………………………………………………………………………iii
Glossary of Abbreviations and Acronyms……………………………………………....vii
Introduction:
i. Committee Membership ………………………………………………………………..ix
ii. Terms of Reference (TOR)……………………………………………………………...x
iii. Timeframe ………………………………………………………………………………….....x
Acknowledgement ………………………………………………………………………………….xi
Modus Operandi……………………………………………………………………………………..xiii
Executive Summary ……………………………………………………………………………….xxi
Chapter One: Definition, Roles and Functions of the Public Service
and the Civil Service……………………………………………………………1
Chapter Two: Structure of the Public Service…………………………………………….4
Chapter Three: Review of the Reports of Previous Panels,
Committees and Conferences …………………………………………..9
Chapter Four: State of the Public Service ………………………………………………..11
Chapter Five: Management of the Public Service ……………………………………..16
Chapter Six: Federal Character and Other Constitutional Matters
6.1. Federal Character and Other Constitutional Bodies………………. 22
6.2. Retirement Benefits……………………………………………………………… 23
Chapter Seven: New Challenges and Reforms:
7.1. Previous Government Initiatives …………………………………………..25
7.2. Size and Cost of Governance…………………………………………………26
7.3. Budgeting and Public Expenditure Reform……………………………29
7.4. Presentation, Consideration, Approval and Presidential

2014 National Conference: Report of the Committee on Public Service Page ii
Assent to the Appropriation Bill ……………………………………………..30
7.5. Service Delivery …………………………………………………………………...31
7.6. Anti-Corruption, Accountability and Transparency………………..32
7.7. Performance Management in the Public Service…………………....34
7.8. Capacity Building and Continuous Skill Development……………36
7.9. Incentive Framework for Public Servants, Service
Welfare and Productivity………………………………………………………37
7.10. Institutional Framework for Sustainable Development …………38
7.11. Personnel Pay Management………………………………………………….40
7.12. Labour Issues, (Including Minimum Wage) and
Retirement Age …………………………………………………………………….41
7.13. Constitutional and Legal Framework for Public
Service Management ……………………………………………………………42
7.14. Persons Living with Disabilities…………………………………………….43
7.15. Creation of a Separate Foreign Service Commission ………………44
Chapter Eight: Summary of Recommendations:
8.1. Constitutional and Legal Matters ………………………………………...45
8.2. Policy Matters ……………………………………………………………………48
Chapter Nine: Conclusion……………………………………………………………………….59

2014 National Conference: Report of the Committee on Public Service Page iii
May 15, 2014
Hon. Justice Idiris Legbo Kutigi, GCON
Chairman,
2014 National Conference,
The Presidency,
Abuja.
Submission of the Report of the Committee on Public Service
We, the undersigned, members of the Committee on Public Service, have the
pleasure to submit our Report to you.
2. The Chairman will recall that the Committee on Public Service is one of the
twenty (20) Committees to undertake in-depth study of the various thematic
issues identified by the 2014 National Conference. Delegates who participated
in the deliberations of the Committee are listed in the “Introduction” section
of this Report.
In the document on the “Structure of Committees”, the Committee on Public
Service was assigned the following Terms of Reference (TOR):
i. Federal Character
ii. Civil Service Structure
iii. Remuneration of Public Officers and Civil Servants
iv. State of the Civil Service
v. Salary Structure
vi. Any Other Relevant Matter

2014 National Conference: Report of the Committee on Public Service Page iv
As Committees were given the approval to include other relevant matters, the
Committee included the following matters in its scope of work:
i. Pension Matters
ii. Labour Issues, Minimum Wage and Retirement Age
iii. Persons Living with Disabilities in Nigeria
iv. Size and Cost of Governance
v. Ongoing Reforms in the Public Service
According to the approved Work Plan of the Conference, Committees were
expected to submit Reports on April 30, 2014. This was subsequently
extended to May 15, 2014, after a realistic consideration of the time required
to do justice to the assignment of the various Committees.
Having worked assiduously to meet the new target date, we are glad to
present herewith our Report, which consists of:
i. Executive Summary;
ii. Detailed consideration of our TOR; and
iii. Major Findings and Recommendations.
As required by the Conference Secretariat, we have also highlighted our
Recommendations that will require Constitutional Amendments and those
that are essentially Policy Issues.
While expressing our sincere gratitude for the opportunity to serve on this
pivotal Committee, we sincerely hope that the recommendations contained
herein will not only enhance the outcome of the Conference but also promote
National development.
Please accept, Mr. Chairman, the assurances of our highest esteem.
……………
Engr. Ebele O. Okeke, FNSE, FICE, CFR
Chairperson

2014 National Conference: Report of the Committee on Public Service Page v
………….
Amb. Adamu Aliyu, OFR, mni
Deputy Chairman
………….. …………..
HRH Alh. (Dr.) Nuhu Mohammad Sanusi, CON Dr. Edet Ekerendu
Member Member
…………… ……………
Chief Sampson O. Agbaru Rt. Hon. Abdussalam Taofiq Olawale
Member Member
……………. …………….
Prince Olusola Akanmode Rt. Hon Habu Isa Ajiya, OON
Member Member
………………. ………………
Ammuna Lawan Ali, OON, mni, fnia Akin Arikawe, OON
Member Member
……………… ………………
Alhaji Saidu Barda, CON Com. Olayinka Olabode Dada, JP
Member Member
……………… ……………..
Alh. Yusuf Kawu Daibu Chief Paul Enebeli
Member Member
……………… ………………..
Dame (Hon. Chief ) Eunice A. Igwe, JP Com. Bobboi Bala Kaigama
Member Member

2014 National Conference: Report of the Committee on Public Service Page vi
………………. ………………….
Mamman Kenan Kumo Com. Kiri Mohammed Shuaibu
Member Member
………………. ………………
Prof. Joshua C. Ogbonnaya, OON, MNIM Chief Ajibola Ogunshola
Member Member
……………….. ……………….
Com. Olakunle Olaitan Olanrewaju Prof. Yusufu Turaki
Member Member
………………
Barr Halidu Ibrahim, OON, fwc
Member

2014 National Conference: Report of the Committee on Public Service Page vii
Glossary of Abbreviations and Acronyms
ACTU Anti-Corruption and Transparency Unit
APER Annual Performance Evaluation Report
ASCON Administrative Staff College of Nigeria
BPE Bureau of Public Enterprises
BPP Bureau of Public Procurement
BPSR Bureau of Public Service Reforms
CBN Central Bank of Nigeria
CCB Code of Conduct Bureau
CCT Code of Conduct Tribunal
CDC Constitution Drafting Committee
CFR Commander of the Federal Republic
CMD Centre for Management Development
CON Commander of the Order of the Niger
CONAFSS Consolidated Armed Forces Salary Structure
CONHESS Consolidated Health Salary Structure
CONMESS Consolidated Medical Salary Structure
CONPASS Consolidated Para-Military Salary Structure
CONPCASS Consolidated Polytechnic and Colleges of Education
Academic Salary Structure
CONPOSS Consolidated Police Salary Structure
CONPSS Consolidated Public Service Salary Structure
CONRAISS Consolidated Research and Allied Institutions Salary
Structure
CONTEDISS Consolidated Tertiary Educational Institutions Salary
Structure
CONTISS Consolidated Tertiary Institutions Salary Structure
CONUASS Consolidated University Academic Salary Structure
CPS Contributory Pension Scheme
EFCC Economic and Financial Crimes Commission
FCSC Federal Civil Service Commission
FEC Federal Executive Council
FGN Federal Government of Nigeria
FOI Freedom of Information
GCFR Grand Commander of the Federal Republic
GCON Grand Commander of the Order of the Niger
GDP Gross Domestic Product
GL Grade Level

2014 National Conference: Report of the Committee on Public Service Page viii
GSO General Services Office
HOCSF Head of the Civil Service of the Federation
HRM Human Resource Management
ICPC Independent Corrupt Practices and other Related Offences
Commission
ICT Information and Communications Technology
IPPIS Integrated Personnel and Payroll Information System
MBO Management By Objectives
MDAs Ministries, Departments and Agencies
mni Member of the National Institute
MON Member of the Order of the Niger
NGO Non-Governmental Organization
NIPSS National Institute for Policy and Strategic Studies
NSIWC National Salaries, Incomes and Wages Commission
OFR Officer of the Federal Republic
OHCSF Office of the Head of the Civil Service of the Federation
OON Officer of the Order of the Niger
OPS Organized Private Sector
PENCOM National Pension Commission
PFAs Pension Funds Administrators
PFCs Pension Fund Custodians
PPP Public Private Partnership
PSR Public Service Rules
RMA&FC Revenue Mobilization, Allocation and Fiscal Commission
RSA Retirement Savings Account
SA Special Assistant
SERVICOM Service Compact with all Nigerians
SGF Secretary to the Government of the Federation
SSG Secretary to the State Government
SSS State Security Service
TNA Training Needs Assessment
TORs Terms of References
UGSS Unified Grading Salary Structure

2014 National Conference: Report of the Committee on Public Service Page ix
Introduction
This Report is the product of the work of the Committee on Public Service,
being one of the twenty (20) Committees of the 2014 National Conference.
The Committee’s Membership, Terms of Reference (TOR) and Time Frame are
presented below.
Committee Membership
Conference Delegates who participated in the Committee’s deliberations are:
1. Engr. Ebele O. Okeke, FNSE, FICE, OON, CFR Chairperson
2. Amb. Adamu Aliyu, OFR, mni Deputy Chairman
3. HRH Alh. (Dr.) Nuhu Mohammad Sanusi, CON Member
4. Chief Sampson O. Agbaru Member
5. Prince Olusola Akanmode Member
6. Rt. Hon Habu Isa Ajiya, OON Member
7. Rt. Hon. Abdussalam Taofiq Olawale Member
8. Com. Kiri Mohammed Shuaibu Member
9. Dr. Edet Ekerendu Member
10. Ammuna Lawan Ali, OON, mni, fnia Member
11. Akin Arikawe, OON Member
12. Alhaji Saidu Barda, CON Member
13. Com. Olayinka Olabode Dada, JP Member
14. Alh. Yusuf Kawu Daibu Member
15. Chief Paul Enebeli Member
16. Dame (Hon. Chief ) Eunice A. Igwe, JP Member
17. Com. Bobboi Bala Kaigama, Member
18. Mamman Kenan Kumo Member
19. Prof. Joshua C. Ogbonnaya, OON, MNIM Member
20. Chief Ajibola Ogunshola Member
21. Com. Olakunle Olaitan Olanrewaju Member
22. Prof. Yusufu Turaki Member
23. Barr Halidu Ibrahim, OON, fwc Member

2014 National Conference: Report of the Committee on Public Service Page x
Terms of Reference (TOR)
The Committee on Public Service is one of the twenty (20) Committees
assigned to undertake in-depth study of the various thematic issues identified
by the 2014 National Conference. In the document on the “Structure of
Committees”, the Committee was assigned the following Terms of Reference
(TOR):
i. Federal Character
iii. Remuneration of Public Officers and Civil Servants
iv. State of the Civil Service
v. Salary Structure
vi. Any Other Relevant Matter
As Committees were given the approval to include other relevant matters, the
Committee included the following matters in its scope of work:
i. Pension Matters
ii. Labour Issues, Minimum Wage and Retirement Age
iii. Persons Living with Disabilities in Nigeria
iv. Size and Cost of Governance
v. Ongoing Reforms in the Public Service
Time Frame
According to the approved Work Plan of the Conference, we were expected to
submit our Report on April 30, 2014. This was subsequently extended to May
15, 2014, after a realistic consideration of the time required to do justice to
the assignment of the various Committees.
In order to meet the new target, we worked assiduously on every sitting day:
i. Morning Sitting: 9am -2pm;
ii. Lunch Break: 2pm- 3pm
iii. Afternoon Sitting: 3pm-6pm.

2014 National Conference: Report of the Committee on Public Service Page xi
Acknowledgement
We wish to convey our profound acknowledgement and appreciation to all
individuals and organizations that made valuable contributions to the
successful discharge of this important assignment. Due to time and space
constraint, it was practically impossible to list all our enablers; nonetheless,
we wish to mention a few.
Accordingly, we would like to express our gratitude to His Excellency, Dr.
Goodluck Ebele Johnattan, GCFR, for according us the opportunity to be
amongst the Delegates to the 2014 National Conference.
Secondly, we wish to appreciatively note the enabling environment and
materials provided by the Conference Chairman, Hon. Justice Idris Legbo
Kutigi, GCON; the Conference Deputy Chairman, Prof. Akinwande Bolaji
Akinyemi; the Conference Secretary, Dr. (Mrs) Valerie Azinge; other
Conference Principal Officers and the entire Leadership for the Committee’s
work.
Our special gratitude goes to the Leadership of the Council of Retired Federal
Permanent Secretaries (CORFEPS), notably, Izoma Philip C. Asiodu, CON,
Chairman, Board of Trustees and National Chairman, CORFEPS; Asiwaju
Olatunji Olutola, Member, Board of Trustees and General Secretary, CORFEPS;
and Mahmud Yayale Ahmed, CFR, Chairman, Abuja Chapter, CORFEPS. We
extend the same gratitude to the following members of CORFEPS for their
immense contribution to the articulation of the Council’s Position Paper on
Public Service to the Conference: Chief (Dr) Augustine O. Okafor,OON; Goke
Adegoroye , OON,PHD; Mr. Japh C. T. Nwosu, OON; Dr. Lami Hamza; Dr. Rafiq Layi
Ogunbambi, OON; Amb. Lady Nkem U. O. Wadibia-Anyanwu, OON; and Dr. (Mrs.)
Sefia I. Mohammed.
Furthermore, we wish to register our deep appreciation to all the
stakeholders for their informed inputs into the Committee’s work. Such
stakeholders include, amongst others, the Head of the Civil Service of the
Federation, Council of Retired Federal Permanent Secretaries (CORFEPS),
Committee of Retired Ambassadors, Nigeria Labour Congress (NLC), Trade
Union Congress (TUC), Association of Senior Civil Servants of Nigeria, National
Civil Service Association of Persons Living with Disabilities, Committee of the
National Council on Establishment (Conclusions on the Provisions of 1999
Constitution as contained in its 34th Meeting of November 2009), Chairman,

2014 National Conference: Report of the Committee on Public Service Page xii
Federal Civil Service Commission;; National President, National Civil Service
Association of Persons with Disabilities (Nigeria); Association of Retired
Permanent Secretaries, Akwa-Ibom State; Dame (Hon, Chief.) Eunice A. Igwe ,
Jp; Chief Robert Usman Audu,OON, Retired Federal Permanent Secretary;
Prince Engr. Chidi Izuwah; Dr. Emeka Ejikonye; Tanko Kokwain; M. F. Ajayi;;
Prof. Shuaibu Abdulraheem Oba, OFR; Hajiya Maryam Ladi Ibrahim; Divine Hart
Ihegwu; Mr. S. A. Irenroa; National Infrastructure Concession Regulatory
Commission (ICRC); River State Government; etc.
We are equally appreciative of the useful interactive sessions held with the
Head of the Civil Service of the Federation (HOCSF); Chairman, Federal Civil
Service Commission (FCSC); Chairman, Nigerian Labour Congress (NLC);
Chairman, Trade Union Congress (TUC); President, Persons Living with
Disabilities; DG, Pension Transition Arrangement Department (PTAD);
Chairman, Revenue Mobilization, Allocation and Fiscal Commission (RMAFC);
Chairman, National Pension Commission (PENCOM); Chairman, National
Salaries, Incomes and Wages Commission (NSIWC); Chairman, Federal
Character Commission (FCC); and Chairman, National Assembly Service
Commission.
Also, we wish to convey our appreciation to the Resource Persons who
provided independent technical advice in processing the production of the
Committee’s Report. They include, notably, Dr. Yahaya Abdullahi, Retired
Federal Permanent Secretary; Dr. Gabriel A. Gundu, Retired Federal Director;
Dr. Tunji Bolade, Retired Federal Director; Mr. Abiodun Alao, Retired Federal
Director; and Mr. Victor Mayomi, Deputy Director, Federal Ministry of Lands,
Housing and Urban Development.
Finally, we wish to extend the same appreciation to the Support Staff who
provided the required administrative and secretariat enabling services, who
include: Ogilegwu Ajah Sunday, ICT Expert from CORFEPS Secretariat; Engr.
Lucy Ikeakanam (CORFEPS); and Amuche G. Ezema Esq. (Secretary), Sophia
Obi, Ph.D, (Rapporteur), Barr. (Mrs.) Opkaravero Prudence Adula,
(Rapporteur), Mrs. K. Titilayo Akingbemisilu, (Editor/Verbatim Reporter) and
Mrs. Esther O. Manjiche, (Verbatim Reporter) from the Conference Secretariat.

2014 National Conference: Report of the Committee on Public Service Page xiii
Modus Operandi
We executed our assignment in three major phases of activities.
Phase 1: Examination of the TOR and Inclusion of Other Relevant
Matters
We extensively deliberated on their TOR with a view to broadening and
deepening understanding of our scope of work.
Phase 2: Information Gathering
Major activities comprised:
Literature Review
We carefully reviewed the following documents:
i. Reports and Recommendations of various previous Panels
SN Conference/Panel Report Title Date
1 Political Bureau Conference Report of the Political Bureau Conference 1987
2 Constitutional Conference Report of the Constitutional Conference, Vol.
1 (Containing the Draft Constitution)
1995
3 Constitutional Conference Report of the Constitutional Conference, Vol.
2 (Containing the Resolutions and
Recommendations)
1995
4 National Political Reform
Conference
Report of the National Political Reform
Conference
2005
5 National Political Reform
Conference
Implementation Guide: National Political
Reform Conference
2005
6 Presidential Committee on Review
of Outstanding Issues from Recent
Constitutional Conferences
Report of the Presidential Committee on
Review of Outstanding Issues from Recent
Constitutional Conferences(Main Report)
July 2012
7 Presidential Committee on the
Review of Outstanding Issues from
Recent Constitutional Conferences
Report of the Presidential Committee on the
Review of Outstanding Issues from Recent
Constitutional Conference (Executive
Summary)
July 2012
8 Presidential Committee on the
Review of the Reform Processes in
the Nigerian Public Service
Report of the Presidential Committee on the
Review of the Reform Processes in the
Nigerian Public Service (Fika Report)
September
2012

2014 National Conference: Report of the Committee on Public Service Page xiv
9 Presidential Committee on
Restructuring and Rationalization
of Federal Government Parastatals,
Agencies and Commissions
Report of the Presidential Committee on
Restructuring and Rationalization of Federal
Government Parastatals, Agencies and
Commissions (Oronsaye Report)
2013
ii. Stakeholders Memoranda as tabulated here-below:
SN Author Title
1 Council of Retired Federal Permanent
(CORFEPS)
The Civil Service and Nation Building: Resetting the
Role of the Civil Service in Democratic Governance
2 Office of the Head of the Civil Service of the
Federation (OHCSF)
State of the Civil Service of the Federation
3 Committee of the National Council on
Establishment (Conclusions on the
Provisions of 1999 Constitution as contained
in its 34th meeting of November 2009),
Report of the Committee on the Review of the
Provisions of the 1999 Constitution of the Federal
Republic of Nigeria as they affect the Public Service
4 Association of Retired Permanent
Secretaries, Akwa-Ibom State
True Federalism: A Recipe for Harmonious Co-
Existence in Nigeria.
5 Dame (Hon, Chief ) Eunice A. Igwe, Jp Application of Federal Character in Public Service: An
Affirmative Action Towards National Integration in
Nigeria
6 Association of Senior Civil Servants of
Nigeria
Need for Upward Wage Review in the Civil Service
Nigeria
Need for Upward Review of Retirement Age in the
Core Civil Service to 65 Years or 40 Years of Service,
whichever Comes First
Nigeria
Need to Retain the National Minimum Wage in the
Exclusive Legislative List in the Constitution of the
Federal Republic of Nigeria
9 M. F. Ajayi Challenges Facing Retired Public Officers
10 Hassan Rilwan, Delegate Representing Other
Youth Organizations
Youth Position Based on My Think Tank and Opinion
Polls on the Social Media
11 Trade Union Congress (TUC) of Nigeria State of the Public/Civil Service

2014 National Conference: Report of the Committee on Public Service Page xv
12 Nigeria Labour Congress (NLC) State of the Public/Civil Service
13 Uchegbulam, U. Ikem Esq. National
President, National Civil Service Association
of Persons with Disabilities (Nigeria) Inc.
Persons with Disabilities in Nigeria and the Public
Service
14 Prof. Shuaibu Oba Abdulraheem, OFR, Talba
Ilorin, Executive Chairman, Federal
Character Commission.
Overview of the Operations of the Federal Character
Commission
15 Hajiya Maryam Ladi Ibrahim, Kogi State
Delegate
Industrialization of the Nigerian Economy-The Way
Forward: A Case Study of the Ajaokuta Steel
Company Limited (ASCL)
16 Divine Hart Ihegwu Charting a New Course to a Glorious Nigeria
17 Infrastructure Concession Regulatory
Commission (ICRC)
i. The ICRC Act
ii. The National Infrastructure transformation: the
Role of Public Private Partnership
18 The Nigeria Society of Engineers Position Paper on Constitution and Other Related
Matters of National Importance
19 National Pension Commission (PENCOM) Update on the Pension Reforms and Modus Operandi
of PENCOM
20 Rivers State Government Position of the Government and People of Rivers
State on Fundamental Issues Before the National
Conference.
21 Tanko Kokwain Memo Against Early Retirement as a Result of
Federal Government Tenure Policy as it Affects
Directors in Public Service.
22 Dr. Emeka Ejikonye A Budgeting Reform Initiative
23 Prince Engr. Chidi Izuwah Why Countries are Rich or Poor
24 Dr. Robert Audu Usman OON National Conference 2014, Contributions to Thematic
Discussions at the Committee Level
25 Association of Retired Permanent
Secretaries Akwa-Ibom
True Federalism: A Recipe for Harmonious Co-
Existence in Nigeria
26 Henry Lucas Agbadaola Meomrandum on Removal of Dichotomy Between the
University and Polytechnic Graduates in the Public
Service
27 Mr. S. A. Irenroa Nigeria Civil Service Reformation
28 Chairman, Federal Civil Service Commission i. Brief on the Proposal on Strengthening the
Operations of the FCSC

2014 National Conference: Report of the Committee on Public Service Page xvi
(FCSC) ii. 60th Anniversary Celebration and
Presidential Public Service Lecture
29 Chairman, National Assembly Service
Commission (NASS Service Commission)
Brief on the Operations of the NASS Service
Commission
30 Prof. I. L. Bashir Enhancing Efficiency and Productivity in Water
Sector Projects
31 Committee of Retired Ambassadors Proposal on the Establishment of Foreign Service
Commission
iii. National Strategy for Public Service Reform: Towards a World-Class
Public Service (2009);
iv. Provisions of the 1999 Constitution (as amended) as they affect the
Public Service.
Consultative/Interactive Sessions with Strategic Stakeholders
In order to elicit broad-based insight into the challenges of the Public Service
System towards proffering effective solutions to same, Committee Members
resolved to hold Consultative/Interactive Sessions with some Strategic
Stakeholders. They include:
i. Secretary to the Government of the Federation
ii. Head of the Civil Service of the Federation
iii. Chief Philip Asiodu, CON
iv. Adamu Waziri Fika, GCON, CFR
v. Mahmud Yayale Ahmed, CFR
vi. Chairman, Federal Civil Service Commission
vii. Chairman, Federal Character Commission
viii. Chairman, National Assembly Service Commission
ix. President, Nigeria Labour Congress
x. President-General, Trade Union Congress
xi. Chairman, Salaries, Wages and Revenue Mobilization Commission
xii. Chairman, National Judicial Commission
xiii. Chairman, National Union of Pensioners
xiv. Representative of Public Universities-Vice Chancellor, ABU, UNN and
OAU
xv. Clerk to the National Assembly
xvi. Registrar, Supreme Court
xvii. National Union of Local Government Employees

2014 National Conference: Report of the Committee on Public Service Page xvii
xviii. Chairman, State Civil Service Commission (Representative from Selected
States);
xix. Director-General, Infrastructure Concession Regulatory Commission
(ICRC)
xx. Committee of Retired Ambassadors
However, due to the practical reality of time constraints, arising from the
short time-frame within which all Committees were to conclude work and
turn in their Reports, Committee Members had to scale down the number of
Strategic Stakeholders to be invited to the Consultative/Interactive Session.
These are tabulated here-below:
SN Strategic Stakeholders Discussion Topics
1 Secretary to the Government of the
Federation (SGF)
State of the Public Service: Parastatals and Other
Arms of Government
2 Head of the Civil Service of the Federation
(HOCSF)
i. State of the Civil Service
3 Chairman, Federal Civil Service
Commission (FCSC)
State of the Civil Service
4 President, Nigeria Labour Congress (NLC) State of the Public/Civil Services
5 President-General, Trade Union
Conference (TUC)
State of the Public/Civil Services
6 President, Persons Living with Disabilities State of the Public/Civil Services
7 Chairman, National Pension Commission
( PENCOM)
Pension Matters
8 DG, Pension Transition Arrangement
Department (PTAD)
Pension Matters
9 Chairman, Revenue Mobilization,
Allocation and Fiscal Commission
(RMAFC)
Salary Structure and Remuneration of Public
Officers and Civil Servants
10 Chairman, National Salaries, Incomes and
Wages Commission (NSIWC)
Brief on the Operation of National Salaries,
Income and Wages Commission
11 Chairman, Federal Character Commission Federal Character

2014 National Conference: Report of the Committee on Public Service Page xviii
(FCC)
12 Chairman, National Assembly Service
Commission (NASSC)
State of the Civil Service
13 Director-General, Infrastructure
Concession Regulatory Commission (ICRC)
Public-Private Partnership
14 Association of Retired Ambassadors Creation of Foreign Service Commission
Constitution of Sub-Committees
In order to deepen and broaden reflections on our TOR, and provide insightful
findings and recommendations, we had to constitute three Sub-Committees.
The Nomenclature, Membership and TOR of the Sub-Committees are
tabulated here-below:
Nomenclature Membership TOR
Sub-Committee
One
i. Dr. Edet Ekerendu - Chairman
ii. Alh. Saidu Barda, CON
iii. Com. Olakunle Olaitan
Olanrewaju
iv. Dame (Hon.Chief) Eunice A.
Igwe, Jp
v. Barr. Halidu Ibrahim, OON, fwc
vi. Com. Olayinka Olabode Dada, Jp
i. Synopsis of Reports of
Previous Conferences/Panels
as they affect the Public
Service
ii. Definitions, Roles and
Functions of the Public
Service and Civil Service
iii. Structure and Organization of
the Public Service
iv. Management of the Public
Service:
- Laws
- Rules
- Regulations
- Ethics of the Public Service
Sub-Committee
Two
i. Ammuna Lawan Ali, OON, Mni,fnia -
Chairperson
ii. Com. Kiri Mohammed Shuaibu
iii. Rt. Hon. Abdussalam Taofiq
Olawale
iv. Prof. Joshua C. Ogbonnaya, OON,
MNIM
v. Alh. Yusuf Kawu Daibu
vi. Chief Ajibola Ogunshola
vii. Chief Sampson O. Agbaru
i. Federal Character and other
Constitutional Matters
ii. State of the Public Service:
- As documented in the
Previous Reports
- Situation Analysis of the
Public Service
- Impact of the Presidential
System

2014 National Conference: Report of the Committee on Public Service Page xix
iii. Retirement Benefits:
- Pension Matters
- Severance/Gratuity
Sub-Committee
Three
i. Prince Olusola Akanmode, –
Chairman
ii. HRH Alh. (Dr.) Nuhu M. Sanusi,
CON
iii. Prof. Yusuf Turaki
iv. Mamman Kenan Kumo
v. Akin Arikawe, OON
vi. Chief Paul Enebeli
i. New Challenges and Reforms
- Performance Management
- Service Delivery
- Transparency and
Accountability
- Service Welfare and
Productivity (Persons Living
with Disabilities, Housing and
National Health Insurance
Scheme)
- Pension Reforms
- Size and Cost of Government
- Anti- Corruption
- Public Procurement Act
- Fiscal Responsibility Act
- EFCC/ICPC/CCB/CCT
- Training and Capacity
Building
- Public Private Partnership
- Enhancing Capacity for
Implementing Vision 20:2020
ii. Implications for True
Federalism and Forms of
Government
(Parliamentary/Presidential)
Phase 3: Report Production and Presentation
Report production activities encompassed:
i. Adopting an “Outline of the Report of the Committee on Public Service”;
ii. Adopting an “Outline of the Reports of the Sub-Committees”;
iii. Engaging some Resource Persons who provided technical expert advice
in processing the production of the Committee’s Report;
iv. Drafting the Sub-Committees’ Reports;
v. Drafting the preliminaries of the Committee’s Main Report;
vi. Harmonizing the draft Subcommittees’ Reports and the Preliminaries
into the Committee’s Main Report; and
vii. Validating and adopting the harmonized Main Report.
Activities for formal presentation of the Committee’s Report comprised:
i. Signing of the Main Report by all Members of the Committee;

2014 National Conference: Report of the Committee on Public Service Page xx
ii. Formal submission of the Main Report by the Committee’s Chairperson
to the Conference Secretariat on May 15th, 2014; and
iii. Formal presentation of the Committee’s Report at the Conference
Plenary.

2014 National Conference: Report of the Committee on Public Service Page xxi
Executive Summary
This Report consists of nine Chapters. Chapter One provides an insight into
the definition, roles and functions of the Public Service vis-a-vis the Civil
Service. Though the Public Service and the Civil Service are two distinct terms,
they are commonly and erroneously used interchangeably.
The Public Service in Nigeria consists of the Civil Service at the Federal and
State levels (Ministries and extra Ministerial Agencies), Constitutional
Bodies (at Federal and State levels), National Assembly, and the State
Assembly Services, the Judicial Service, the Armed Forces, Security
Services, the Police, Para-Military Services, Parastatals and Public
Enterprises (at Federal and state levels). The Public Service is responsible for
the creation of an appropriate environment in which all sectors of the
economy can operate maximally.
On the other hand, the Civil Service, as a sub-set of the Public Service, refers
to institutions with personnel employed in civil capacity for the formulation
and implementation of Government policies, programmes and projects. Its
defining characteristics include neutrality from partisan politics by serving
any government of the day; secure service tenure till retirement with pension;
conducting government business in line with a system of extant rules and
regulations; hierarchical Structure; etc.
Chapter Two gives a synopsis of the Public Service Structure which consists
of the three Arms of Government (Executive, Legislature and the
Judiciary) and the three tiers of Government i.e Federal, State and Local
Government. The Executive arm, headed by the President, consists of the
enlarged Public Service and the core Civil Service as defined above.
The Legislature consists of the Senate and the House of Representatives
with the powers to make laws for the peace, order and good government of
the Federation or any part thereof.
The Judiciary has responsibility for interpreting the laws through courts of
competent jurisdiction. The structure of the Public Service at the State level is
almost completely modeled after that of the Federal level.

2014 National Conference: Report of the Committee on Public Service Page xxii
In a Presidential system, the doctrine of separation of powers is sacrosanct.
This notwithstanding, all the three arms are expected to promote the security
and welfare of the people which, according to the Constitution, “shall be the
primary purpose of Government”.
Chapters Three to Seven focus on findings and recommendations in the
following thematic areas: Review of the Reports of the Previous Panels,
Committees and Conferences; State of the Public Service; Management of the
Public Service; Civil Service and Parastatals; and New Challenges and Reforms.
Chapter Eight is a Summary of Recommendations in two broad categories:
those requiring constitutional and legal attention, and those requiring policy
actions. Chapter Nine provides a few concluding paragraphs. The Key
Recommendations in the Report are as follows.
Reports of Previous Panels, Committees and Conferences
The issue of the capacity of the Public Service to perform its role and
functions effectively and efficiently has featured prominently in several
Conferences set up by the Federal Government in the past. These includes the
Political Bureau Conference of 1987, the Constitutional Conference of 1995
and the National Political Conference of 2005. In addition, specific Presidential
Panels and Committees have been set up to put a search light on the Public
Service in general and the Civil Service in particular. The Panels include, the
Public Service Review Commission of 1974 (Udoji Review Commission);
Dotun Philips Public Service Review of 1986; the Review Panel on Civil
Service Reform of 1994 (Ayida Report); the Review of the Reform Processes in
the Nigerian Public Service of 2012 (Fika Report) and the Committee on
Restructuring and Rationalization of Federal Government Parastatals and
Agencies of 2012 (Oronsaye Report). All the Conferences, Panels and
Committees made far reaching recommendations which are still current and
relevant. Regrettably, most of them have not been implemented. A review of
the recommendations are contained in Chapter III of this Report. A few of
them are:
i. The need for friction-free relationship between the political leadership
of Ministries, Departments and Agencies (MDAs) and their top Civil
Servants;
ii. The appointment of the Secretary to the Government of the Federation
should be based on managerial capacity and rich Civil Service
experience. It is therefore recommended that the Secretary to the

2014 National Conference: Report of the Committee on Public Service Page xxiii
Government of the Federation should be appointed from the pool of
experience and knowledgeable retired top civil Servants;
iii. The need to minimize disparities in public sector pay, particularly
between political appointees, public officers, civil servants and the staff
of parastatals;
iv. Adequate and regular orientation programmes for political appointees
and top Civil Servants to enlighten them on their roles and
responsibilities as well as the limit of their powers; and
v. Issues relating to ethics, core values, accountability and transparency in
the conduct of government business.
Federal Character and Other Constitutional Matters
The principle of Federal Character was formally brought into the Constitution
in 1979, but the Federal Character Commission (FCC) was formally
established by the FCC Act of 1996. By the Act, the Commission is charged
with the responsibility to promote, monitor and enforce compliance in the
proportional sharing of bureaucratic posts, appointments and equitable
sharing of infrastructural facilities and socio-cultural amenities.
The Federal Character Principle has had practical application in
appointments to key posts of Ministers, Permanent Secretaries and
appointments to Boards of Parastatals and Commissions. It has also been
applied in the location of Federal Educational and Health Institutions like the
Unity Secondary Schools, Polytechnics, Universities and Federal Medical
Centres. The Committee observed that the Federal Character Principle does
not necessarily compromise merit because one of the guiding principles in its
application is that “the best and most competent persons shall be recruited
from each State of the Federation to fill positions reserved for indigenes of
that state or the Federal Capital Territory”. However, the Committee is of
the view that the Commission’s second mandate to work out “an equitable
formula, subject to the approval of the President, for the distribution of
socio-economic services, amenities and infrastructure facilities” is
cumbersome and difficult to implement. Not surprisingly, the Commission
admitted, during the Committee’s interaction with FCC members, that it does
not yet have the capacity and wherewithal to carry out this mandate.
Finally, it has been observed that there are restrictions to the application of
the Federal Character Principles at the State and Local Government levels.

2014 National Conference: Report of the Committee on Public Service Page xxiv
Recommendations
i. Continued application and enforcement of the Federal Character
Principle in the Public Service, most especially in the Parastatals and
Commissions.
ii. There is a need to Review Section 4 (1) (d) of the Federal Character
Commission (FCC) Act which states “to work out an equitable
formula, subject to the approval of the President, for distribution of
socio-economic services, amenities and infrastructural facilities” as
it is evident that the resources and capabilities required are over
whelming;
iii. The establishment of State Character Commission by every state of the
Federation to protect the interest of minority groups.
Size and Cost of Governance
One main feature of the Public Service Reforms in both developed and
developing countries is the redefinition of the role of the State. It is now
generally agreed that the role of the State is to concentrate on core functions
of Government and to nurture an environment that is conducive to private
sector development. The role of Government as a catalyst or facilitator is
emphasized in Vision 2010, National Economic Empowerment and
Development Strategy (NEEDS) and Vision 20:2020. Consequently,
government has divested itself from activities that are better performed by
the private sector. The most obvious manifestation of this shift is the
commercialization and privatization of state owned enterprises. In spite of
this, Government is still saddled with as many as 541 parastatals with obvious
high cost implications. Another cause of the high cost of governance is the
proliferation of political appointees (Special Advisers, Senior Assistants,
Special Assistants and Personal Assistants). Of concern is also the
constitutional provision that the President should appoint at least a Minister
from every State of the Federation as well as the practice to go beyond the
constitutional provision to appoint six additional Ministers from the various
six geopolitical zones. Finally, there is the issue of salaries and allowances of
members of the National and State Assemblies which are far above what
obtains in the other arms of Government.

2014 National Conference: Report of the Committee on Public Service Page xxv
Recommendations
i. Constitutional amendment to the provision in Section 147 (3) which
requires that in conforming with the Federal Character Provision in Section
14 (3) “the president shall appoint at least one Minister from each State”
and replace with a provision that” the President shall appoint not more
than one (1) Minister from each State”;
ii. Legislators at the National and State levels should function on part-time
basis while their allowances should be comparable with what obtains in
other arms of the Public Service. Payment of Pension, Life insurance and
severance for Legislators (where they exist) should be cancelled in line
with global best practices;
iii. Full implementation of Integrated Personnel and Payroll Information
System (IPPIS) to ensure payroll integrity and eliminate ghost workers in
the Civil Service, Parastatals, the Legislature, the Judiciary, the Military and
the Para-Military;
iv. While it is appreciated that the nature of Presidential system of
Government necessitates the appointment of ‘Special Advisers’ and ‘Special
Assistants’ to the President, the Vice President, the Governor and the
Deputy Governor, its extension to Ministers, Commissioners and Local
Government Chairmen should be discontinued as a cost-saving measure.
These categories of political office holders should utilize the staff of their
Ministries where it becomes necessary as contained in Circular Ref. No.
B63833/73 of January 3, 2000.
Budgeting and Public Expenditure Reform
The Budget is the major tool for attaining Government’s socio-economic
development objectives through sectoral allocation of financial resources. In
recent times, however, concerns about the efficacy of Budgets have led to the
rethinking of budgeting and financial management systems and has
constituted one of the major pillars of public service reforms. The essence of
Budget Reform and Expenditure Control is to make budget systems more
transparent and ensure a more strategic approach to resource allocation and
management.

2014 National Conference: Report of the Committee on Public Service Page xxvi
Recommendations
In order to strengthen the Budget performance and expenditure management
process, the Committee recommends as follows:
i. Establish a national framework for monitoring and evaluating budget
performance;
ii. Set budget performance targets for MDAs;
iii. Encourage CSOs to independently track implementation of programmes
and projects;
iv. Every Appropriation Bill to include key performance indicators and
effective sanctions for non performance.
Presentation, Consideration, Approval and Presidential Assent to the
Appropriation Bill
The Committee notes the seemingly intractable problems associated with the
representation, consideration, approval and Presidential assent to the
Appropriation Bill. One of the Major causes of the problem is the issue of
constituency projects.
Recommendations
i. Section 81 (1) of the 1999 Constitution should be amended to specify
time lines for the submission and approval of the Budget by the
Executive and the Legislature respectively such that Budget
Implementation can commence on 2nd of January every year. The
following timelines are proposed:
 September deadline for presentation of Appropriation Bill by the
Executive to the National Assembly;
 Passage of the Bill by the National Assembly not later than 30th
November;
 Mr. President’s assent in 30 days.
ii. There is a need for harmonious relationship between the Executive and
Legislative Arms of Government in the overall best interest of the
nation. The President and the Leadership of the National Assembly
should continue to nurture a harmonious relationship based on mutual
respect.

2014 National Conference: Report of the Committee on Public Service Page xxvii
Service Delivery
The essence of Public Service Reform is to improve the effective and efficient
performance of the Civil Service in a sustained manner and, in particular, raise
the quality of service delivered to the citizenry. It entails rendering service to
the public in the most satisfactory way in terms of quality, timeliness, cost and
courtesy.
Recommendations
The following recommendations are proffered for the attainment of improved
and sustained service delivery:
i. Every sector and agency of government should be primed for enhanced
service delivery;
ii. Government should design standards of service delivery for all agencies
and provide brochures which will explain their services, procedures and
standards to the general public;
iii. Agencies should strive to ensure value for money in the delivery of
services;
iv. There should be provision for redress for citizens who are denied of
effective, efficient and courteous service by agencies and/or officials;
v. All agencies of government should strive to be customer-driven and there
should be periodic customer surveys to measure citizens’ satisfaction.
Anti-Corruption, Accountability and Transparency
Corruption has attained frightening dimensions in our national life. Efforts
that have been made since 1999 include the setting up of Anti-Corruption
Agencies and the enactment of certain laws such as the Public Procurement
Act which are designed to enhance transparency and accountability. In spite
of these efforts, corruption has remained pervasive.
Recommendations
i. Anti-corruption fight must address the root causes of corruption such as
poor remuneration in the Public Service, lack of social security, degenerate
value system that encourages wealth accumulation and lack of social
security;

2014 National Conference: Report of the Committee on Public Service Page xxviii
ii. Ensure financial autonomy and adequate funding for anti-corruption
agencies;
iii. Diligent prosecution of all cases of corruption and the creation of Special
Courts for the speedy determination of corruption cases.
iv. Monitoring of the life style of public officers and the enforcement of the
provisions of the Code of Conduct Bureau.
v. Code of Conduct, Ethics and core values for Public Officers to be provided
and enforced;
vi. The Curriculum for Training and Capacity Building programmes in the
Public Service should include the core values of integrity, transparency,
accountability, honesty, probity, hard work, humility, courtesy and
humaneness. These are desired human qualities for enhancing productivity
and effective, efficient and timely service delivery.
Performance Management in the Public Service
Performance Management is an essential ingredient of a result oriented Public
Service. Performance Management System involves setting of targets and
measuring achievements by agencies and individuals. It also includes certain
performance indicators, expected outputs, and impacts as well as
performance evaluation. The Committee recognizes that some progress has
been made with the signing of Performance Contracts by some MDAs.
Recommendations
i. Every Budget should clearly indicate the Performance Targets and
Performance Indicators for all MDAs;
ii. A legal framework should be provided for performance management. This
will be similar to the United States of America’s Government Performance
and Results Act (GPRA) of 1993;
iii. Performance management at the individual level should be accorded the
desired emphasis and used as a tool for reward or sanctions in the public
service. More specifically, promotion and career progression should be tied
to continued good performance.
iv. Our Governments and those who run them should begin to develop new
ways of thinking about the conduct of Government business in line with the
global trend of “Reinventing Governments” to become catalytic,

2014 National Conference: Report of the Committee on Public Service Page xxix
competitive, mission-driven, enterprising, proactive, decentralized and
market oriented.
Capacity Building and Continuous Skill Development
Capacity building is central to the development of any organization, and the
Public Service is not an exception. Institutions which avail themselves of such
best practices are those that are leading in output and service delivery.
Regrettably, capacity building has not been accorded the needed emphasis in
recent times.
Recommendations
i. Training programme based on identified training needs, especially in
information and modern technological trends to make Public Servants
conversant with new developments and more effective in the delivery of
services should be drawn-up. Adequate funding for training should also
be provided with at least 10% of personnel cost to be set aside for the
purpose;
ii. Existing Public Service training institutions should, as a matter of
urgency be refurbished and their capacities upgraded. These include the
Administrative Staff College of Nigeria (ASCON), Centre for
Management Development (CMD) and Public Service Institute (PSI)
which should be provided with enhanced funding for improved faculty
and maintenance.
Incentive Framework for Public Servants, Service Welfare and
Productivity
The Civil Service is simply bereft of any meaningful benefit, especially since
the implementation of monetization policy. Besides, retirees under the old
Pension Scheme have been exposed to a lot of hardships due to irregular
payment of pension and gratuity. This has been compounded by the fact
that the constitutional provision for the periodic review of pension has not
been complied with. There is also overwhelming evidence that the National
Health Insurance Scheme (NHIS) provides no adequate cover for the health
challenges of both serving and retired Public Officers.

2014 National Conference: Report of the Committee on Public Service Page xxx
Recommendations
i. The provision of section 173 (3) of the 1999 Constitution (as amended) to
the effect that “Pensions shall be reviewed every five years or together
with any Federal Civil Service salary review, whichever is earlier” has not
been complied with after fourteen years of the effectiveness of the
Constitution. This should be done immediately;
ii. Relevant sections of the Pension Reform Act, 2004 which require that
part of the available funds from the Contributory Pension Scheme be
invested in the Real Estate Sector to boost availability of mortgage
should be adhered to. As at the end of April 2014, the scheme’s
investment in the Real Estate Sector was zero;
iii. The operations of the National Health Insurance Scheme (NHIS)
should, as a matter of priority, be overhauled. Contributors to the
Scheme are currently left without coverage as their health requirements
and those of members of their families are just not being met under the
Scheme. Civil Servants would appear to be the most “short-changed” under
the Scheme with serious negative effect on their health status and morale;
iv. A new sub-section should be introduced in Section 173 of the 1999
Constitution (as amended) to compel Government to review Public Sector
pay every five years to take cognizance of trends in the cost of living index;
v. Everyone indicted for corruption in relation to pension administration
should be promptly brought to justice.
Institutional Framework for Sustainable Reforms
Efforts at reforming the Public Service dates back to the 1970s but the various
reforms have not attained the desired results due to poor implementation.
Both the NEEDS documents and Vision 20:2020 advocated the sustained
implementation of the reforms as sine qua non for the attainment of their
objectives. It is note worthy that the Bureau of Public Service Reform has
been established, while the National Strategy for Civil Service Reform has
been articulated as an implementation framework.

2014 National Conference: Report of the Committee on Public Service Page xxxi
Recommendations
i. Recognizing that Reforms are a continuous exercise and the need for them
to be sustained and deepened by successive administrations;
ii. Wholehearted commitment by the political and bureaucratic leadership;
iii. The need to ensure that reform is focused not only on management but
also on leadership and thereby encourage the emergence of a critical mass
champion to sustain reforms;
iv. The commitment of Public Sector employees in the three tiers and arms of
Government to reform efforts in order to create a sense of ownership.
v. Enlisting the support of the general public, Civil Society Organizations
(CSOs) and the Media in tracking the implementation of reforms;
vi. Development of a national system of monitoring and evaluation of the
implementation of reforms.
Labour Issues Including Minimum Wage and Retirement Age
The Committee debated extensively the proposal from the memorandum of
Labour Unions that “minimum wage” should be retained on the Exclusive
Legislative List and that the retirement age in the Civil Service should be
reviewed upward to sixty-five (65) years of age or forty (40) years of service
from the present practice of 60 years of age or 35 years of service. Also, the
leadership of Unions gave extensive explanation when they appeared before
the Committee on the need to retain minimum wage on the Exclusive
Legislative List and uphold upward review of retirement age in the Civil
Service.
The Committee noted the fact that “minimum wage” is a minimum below
which employers should not go in the remuneration of their workers. Such
minimum wage is usually fixed at a level that is just above the poverty line. It
is the responsibility of the Federal Government to ensure that the pay of every
Nigerian is above the poverty line and as such decides to recommend the
retention of minimum wage in the Exclusive Legislative List. Also the
Committee noted the international best practice whereby a good number of
countries now put retirement age at sixty-five (65) years of age.

2014 National Conference: Report of the Committee on Public Service Page xxxii
Recommendations
i. “Item 34 of Part 1 of the second schedule of the 1999 Constitution (as
amended) should be retained on the Exclusive Legislative List;
ii. Upward review of retirement age to sixty-five (65) years of age or forty
(40) years of service from the present practice of sixty (60) years of age
or thirty-five (35) years of service, whichever is earlier.
Personnel Pay Management
Pay in the Public Service particularly in the Civil Service has become grossly
inadequate. The lower level Public Servants are increasingly becoming
impoverished. In fact the Committee is of the view that adequate pay is not
only an incentive for greater productivity but also one of the major means of
tackling corruption. It is also necessary to tackle payroll fraud which has
assumed alarming proportion.
Recommendations
i. A new subsection should be introduced in Section 173 of the 1999
Constitution to compel Government to review Public Sector pay every
five years to take cognizance of trends in the cost-of-living index;
ii. The Principle of Comparability should be restored to Public Sector
pay. A new study of the job content and pay structure of both the public
and the private sectors should be swiftly undertaken to ensure that
comparable work in the Public Sector vis-a-vis the Private Sector
attracts comparable pay;
iii. There should also be job evaluation in the entire Public Service as a
premise for harmonizing pay in the parastatals and agencies with what
obtains in the Civil Service. This would not only restore relativity
between the pay in the parastatals and agencies viz-a-viz that of the
Civil Service, it is also capable of reducing the size of the recurrent
budget.

2014 National Conference: Report of the Committee on Public Service Page xxxiii
Constitutional and Legal Framework for Public Service Management
In spite of the pivotal importance of the Public Service to governance and the
socio-economic development of the nation, the reference to the Public Service
in the 1999 Constitution is perfunctory. In sharp contrast, Chapter 10 of the
1996 Constitution of South Africa makes provision for the basic values and
principles governing public administration.
While it is true that all those values and principles can be found in various
laws, rules, regulations and procedures guiding the Public Service in Nigeria,
enshrining them in the Constitution will underscore their importance. The
1999 Constitution should be further amended to contain similar provisions
which can come appropriately under the Fundamental Objectives and
Directive Principles of State Policy as “Public Service Objectives”. Such
objective should include:
i. a high standard of professional ethics;
ii. efficient, economic and effective use of resources;
iii. being development-oriented;
iv. providing services impartially, fairly, and equitably;
v. adequate response to people’s needs and building of public trust by
ensuring their participation in policy-making; and
vi. being accountable and transparent by providing the public with timely
and accurate information.
Persons Living with Disabilities
The Committee received a number of Memoranda and presentations from
groups of Persons Living with Disabilities (PLWD). The Committee observed
that sufficient attention is not being paid by Government at all levels to the
plight of these persons. Government Offices have no special provision for
access to PLWD and special toilet facilities are hardly provided. Our roads are
also not disability friendly in terms of road crossings and the provision of
special routes for those on wheel chairs. PLWD in the Service also complain of
being disenfranchised during promotion examinations as question papers are

2014 National Conference: Report of the Committee on Public Service Page xxxiv
not translated into braile and no consideration is given to their
understandably slow reaction to examination questions.
Recommendation
i. Efforts should be made by governments at all levels to make all Public
Offices disability friendly by providing special access facilities for PLWD
including RAMPS for wheel chairs, lifts, or special steps to higher floors,
etc;
ii. In Public Offices special toilets should be provided for PLWD;
iii. Ministries, Departments and Agencies should have a desk for PLWDs
which should be occupied by one of them to enable him/her cater
adequately for PLWD;
iv. Governments at all levels should design Scheme of Service for Sign
Language Interpreters so that employments and work of the deaf
persons will be facilitated;
v. It should be a deliberate policy for all governments to have affirmative
action in the employment of PLWD in the Public Service; and
vi. Governments at all levels should add an allowance to the pay of each
PLWD to enable him/her employ an aide on Salary Grade Level 06.
Creation of a Separate Foreign Service and a Separate Foreign Service
Commission
The Committee met with representatives of the Association of Retired
Ambassadors of Nigeria who submitted a memorandum on the need to create
a separate Foreign Service and a separate Foreign Service Commission to
facilitate the employment, promotion and discipline of Foreign Affairs
Officers. The Committee is persuaded that their request deserves
consideration
Recommendations
i. Creation of a Separate Foreign Service;
ii. Creation of a Separate Foreign Service Commission with a Chairman
and six (6) Commissioners, one of whom should be from each of the six
(6) geo-political zones;

2014 National Conference: Report of the Committee on Public Service Page xxxv
iii. Amendment of the Constitution to include the Foreign Service
Commission amongst the Federal Executive Bodies listed in Section
153(1) of the Constitution.

2014 National Conference: Report of the Committee on Public Service Page 1
CHAPTER ONE
Definition, Roles and Functions of the Public Service
It is important to make a distinction between the Public Service and the Civil
Service; two distinct terms that are commonly but erroneously used
interchangeably. The Public Service refers to all organizations that exist as
part of Government machinery for formulating and implementing policies,
programmes and projects; as well as those for the making and enforcement of
law and order, adjudication of disputes and punishment of offenders. On the
other hand, the Civil Service, as a sub-set of the Public Service, refers to
institutions whose personnel are employed in a civil capacity for the
formulation and implementation of Government projects and programmes
and directly concerned with all aspects of service delivery to meet the needs
of the citizenry.
Defining Characteristics of the Civil Service
The Civil Service, whether at the Federal or State level, has major defining
characteristics. They include:
i. Political Neutrality:The Civil Service is expected to be apolitical and
insulated from partisan politics. Although civil servants can vote, they are
prohibited from playing partisan politics and expected to render loyal
service and provide professional advice to any government in power;
ii. Service Tenure: Civil Servants are employees of the state. They are
expected to serve any Government in power. They have secure career and
remuneration till retirement or death, provided they act lawfully and carry
out lawful directives;
iii.Rules: The Civil Service operates under a system of strict rules, regulations
and procedures that guide the conduct of government business. A Civil
Servant is expected to operate under a strict code of conduct and ethical
principles, the violation of which is punishable, depending on the severity
of the offence. Discipline is therefore the hallmark of the service;
iv.Hierarchy: The Civil Service is a hierarchical institution with super-
ordinates and subordinates carrying out lawful directives in accordance
with legitimately assigned roles and duties. Hence discipline and respect
for authority are required and strictly enforced;

v. Pension on Retirement: One of the expectations of a dutiful Civil Servant
is a modest life after retirement through the payment of regular pension. In
fact, as at the end of 2013, there were still five Britons who had served in
Nigeria before Nigeria‘s Independence and were still on the roll of Nigeria’s
pension payment. Regular pension payment to civil service retirees would
reduce the penchant for corruption, as it is a veritable assurance against
destitution.
Constitutional Provisions
Specifically, the Public Service or the Public Bureaucracy is the enlarged
service, made up of other services including the core Civil Service. In
recognition of this fact, the 1999 Constitution (as amended) Part IV
under the Interpretation, Citation and commencement defines the
Nigerian Public Service to consist of the Civil Service at the Federal and
State levels, (Ministries and extra Ministerial Agencies ), Constitutional
Bodies (at Federal and State levels), National Assembly, and the State
Assembly Services, the Judicial Service, the Armed Forces, Security
Services, the Police, Para Military Services, Parastatals and Public
Enterprises (at Federal and state levels).
Roles
The Public Service exists to fulfill the mandate of Government, which is to
serve the citizens. Accordingly, it is responsible for the creation of an
appropriate environment in which all sectors of the economy can operate
maximally. Specifically the Public Service performs the roles of:
i. Providing advice on the formulation and implementation government
policies and rendering related services to the public;
ii. Ensuring continuity in governance, and serving as a repository of
knowledge and experience of the practices and procedures of
governance;
iii. Ensuring managerial, political and financial accountability;
iv. Serving public interest;

v. Driving all development initiatives; and
vi. Monitoring and evaluating performance of organizations that are
rendering service on behalf of Government.
Functions
The Civil Service on the other hand, performs the following functions:
i. Civil Service management: They are responsible for the effective
management, coordination and service delivery to the public.
ii. The Civil Service promotes institutional linkages in a manner that
enhances service delivery.
iii. The Civil Service is responsible for keeping (management) records of
government activities.
iv. The Civil Service maintains the institutional memory of government for
the enhancement of national capability and also ensures seamless
continuity of the machinery of government from one administration to
another.
v. The Civil Service is responsible for improvements of management
techniques, conditions of service and welfare of staff.
vi. Capacity building: the capacity of the Civil Service is reflected in the
ability of its workforce to have the requisite skills and competencies for
the accomplishment of national strategic goals and objectives through
the depth of its knowledge, experience, values, ingenuity and creativity.
vii. Planning and Budgeting: the civil service is largely involved in
planning and preparation of the annual budget at all tiers of
government.

CHAPTER TWO
Structure of the Public Service
The Public Service is made up of the three arms of Government – The
Executive, the Legislature and the Judiciary.
The Executive Arm
This consists of the core Civil Service, Statutory Corporations and
Government-owned Companies, the Police, the Military, the Para-
military and Security Agencies.
The 1999 Constitution of the Federal Republic of Nigeria (as amended) vests
the Executive authority of the Federal Republic of Nigeria in the President
who is Head of Government, Head of State and Commander in Chief. Section
148 (1) and (2) (a) (b) (c) of the 1999 Constitution provides that:
“The President may, in his discretion, assign to the Vice-
President or any Minister of the Government of the
Federation responsibility for any business of the Government
of the Federation, including the administration of any
department of Government”
Under Subsection 2 (a) (b) and (c) of the same Section 148 the President is
required to hold regular meetings with the Vice-President and Ministers for
the purpose of determining the general direction of domestic and foreign
policies, co-ordinating the activities of the President, Vice President and
Ministers and advising the President generally on the discharge of his
executive functions.
To assist the President in performing his executive functions, Section 171 of
the Constitution also empowers the President to make the following
appointments:
i. Secretary to the Government of the Federation (SGF)
ii. Head of the Civil Service of the Federation (HOCSF)
iii. Ambassadors and other Principal Representatives of Nigeria abroad.
iv. Permanent Secretaries and Heads of Extra-Ministerial Departments.
v. Any office on the Personal Staff of the President.

The Secretary to the Government of the Federation (SGF) is the Secretary
of the Federal Executive Council. He is also charged with the co-ordination of
some activities of Government in the Public Service (ie Ministries, Parastatals
and Commissions). The Head of the Civil Service is in charge of Civil Service
matters. He is expected to provide leadership and direction in the observance
of code of ethics, rules and regulations in the Civil Service.
The Civil Service
The Civil Service of the Federation is established by Section 169 of the
Constitution while the Federal Civil Service Commission is established by
Section 170. The powers of the Federal Civil Service Commission (FCSC) are
the appointment, promotion and discipline of Civil Servants. The Commission
can, however, delegate any of its powers to any of its members or to any office
in the Civil Service of the Federation.
The Principal Organs of the Executive Branch are:
The National Council of States (NCS), the Federal Executive Council (FEC),
the National Defense Council and other Federal Executive Bodies
contained in Section 153 of the Constitution as listed below:
i. Code of Conduct Bureau
ii. Council of State
iii. Federal Character Commission
iv. Federal Civil Service Commission
v. Federal Judicial Service Commission
vi. Independent National Electoral Commission
vii. National Defence Council
viii. National Economic Council
ix. National Judicial Council
x. National Population Commission
xi. National Security Council
xii. Nigeria Police Council
xiii. Police Service Commission
xiv. Revenue Mobilization, Allocation and Fiscal Commission
The composition and powers of the Federal Executive Bodies are contained in
Part I of the Third Schedule to the Constitution.
The Civil Service is Governments’ major tool for formulating and
implementing the policies and programs of government. In performing their

duties, Civil Servants are expected to exhibit the highest standards of
professionalism, neutrality, integrity, probity, efficiency and accountability.
In order to facilitate assignment of responsibilities for a group of specific
activities, the Civil Service is divided into Ministries and Extra-Ministerial
Departments. Each Ministry is headed by a Minister of Cabinet rank who is the
Chief Executive. His Chief Adviser is the Permanent Secretary who is also the
Ministry’s Accounting Officer. In some large Ministries, there are one or more
Ministers of State who assist the Chief Executives. Extra-Ministerial
Departments, on the other hand, usually have their Chief Executives
designated as Chairmen or Directors-General. Every Chief Executives has the
general responsibility for the achievement of the corporate objectives of the
establishment.
Parastatals and State-owned Companies are established to provide
specialised services outside the normal operations of Government ministries.
The services they render, however, amount to the implementation of policies
formulated by their supervising Ministries. Each parastatal is governed by an
enabling law and provided general direction by a Board. The power to appoint
the Chairman and Board Members is vested in the President.
The Legislature
The Constitution of the Federal Republic of Nigeria vests the National
Assembly which consists of the Senate and the House of Representatives with
the power to make laws for the peace, order and good government of the
Federation or any part thereof. The National Assembly can make laws on
matters in the Exclusive Legislative List and the Concurrent Legislative List
contained in the Second Schedule of the Constitution. The House of Assembly
of a State can make laws on matters in the Concurrent Legislative List but if
any law enacted by the House of Assembly of a State is inconsistent with any
law validly made by the National Assembly, that of the National Assembly
shall prevail and the one of the House of Assembly shall, to the extent of its
inconsistency, be null and void.
The presiding officers for the National Assembly are the Senate President and
the Deputy Senate President for the Senate as well as the Speaker and the
Deputy Speaker for the House of Representatives. The Administrative heads
are the Clerk of the National Assembly, the Clerk of the Senate and the Clerk of
the House of Representatives. The National Assembly Service Commission,
like the Federal Civil Commission is charged with the employment, promotion
and discipline of the Staff of the National Assembly.

Section 57 of the Constitution provides that: “Where a Bill is passed by the
two houses and passed to the President for assent, the President will indicate
within 30 days whether he wishes to assent or withhold assent. Where he
withholds assent and the Bill is passed again by two thirds majority in each of
the two houses the bill shall become law”.
Perhaps the most important power of the National Assembly is the power to
control Public Funds through the Appropriation Act and the Public Accounts
Committee. The Legislature also monitors the utilization of Public Funds
through its oversight functions. The exercise of these powers is usually the
cause of friction between the Executive and Legislative arms of Government.
The Judiciary
The Judiciary which is the third arm of Government has responsibility to
interpret laws. At the Federal level the following Courts constitute the
Judicature:
- Supreme Court of Nigeria
- Court of Appeal
- Federal High Court
- High Court of FCT
- Sharia Court of Appeal of FCT
- Customary Court of Appeal of FCT
- The Chief Justice of Nigeria – heads the judiciary and presides over the
Supreme Court of Nigeria
- Appointment – the President appoints the Chief Justice of Nigeria based
on recommendation of the National Judicial Council and subject to
Senate confirmation.
In a Presidential system, the doctrine of the separation of powers is
sacrosanct. This notwithstanding, all the three arms are expected to promote
the security and welfare of the people which, according to the constitution,
“shall be the primary purpose of Government”. Section 13 of the Constitution
also provides that:
“It shall be the duty and responsibility of all organs of
government, and of all authorities and persons, exercising
legislative, executive or judicial powers, to conform to, observe
and apply the provisions of this Chapter of the Constitution”.

The chapter referred to above is Chapter 2 of the Constitution which contains
the “Fundamental Objectives and Directive Principles of State Policy”.
In spite of this provision, the relationship between the Executive and other
arms of Government, especially the Legislature, is not always harmonious.
The major cause of this as earlier pointed out is the Appropriation and
Oversight functions of the Legislature which sometimes bring it into collision
with the Executive. On the other hand, the separation of powers between the
Executive and the Judiciary has been easier to manage. Over the years, the
issue of complete autonomy by the Judiciary had been advocated and
embraced by all. This has also been greatly facilitated by the provision of
Section 81 (3) of the Constitution for the direct funding of the Judiciary from
the Consolidated Revenue Fund of the Federation.
Structure of the Public Service at the State and Local Government Levels
The structure of the Public Service at the State level is almost completely
modeled after that at the Federal level. The only notable difference is that at
the State level the Legislature is unicameral. At the Local Government level
there is a Chairman who exercises executive powers like the President and the
Governor. The Chairman also has a “Cabinet” consisting of the Supervisory
Councilors who are in charge of Departments like Agriculture, Education,
Health and Works. Finally, there is a Legislature consisting of Councilors who
are headed by the Leader of the Council at the Local Government level.

Chapter Three
Review of the Reports of Previous Panels,
Committees and Conferences
In its letter to all Committees, the Leadership of the Conference directed all
Committees of the Conference, “to Review the Reports and Other Working
Documents from Previous Conferences and Memoranda from Delegates
and the Public that are pertinent to the future of Nigeria” as they relate to
the Committee’s Terms of References. In this regard, the Committee reviewed
the reports of previous Panels and Conferences supplied by the Leadership of
the National Conference, the Constitution of the Federal Republic of Nigeria
(as amended) and other documents listed on page 5 of this Report. Some the
documents include:
i. Report of the 1994/95 Constitutional Conference, Chapter XV which is
the Report of the Committee on the Civil Service and Parasttals (pages
175-182);
ii. Report of the Political Bureau of 1987, (pages 108-116) on the Civil
Service and Development;
iii. Report of the National Political Conference of 2005;
iv. Presidential Committee on the Review of the Reform Process in the
Nigerian Public Service 2012 (Adamu Fika Report); and
v. Presidential Committee on the Restructuring and Rationalization of
Government Parastatals, Commissions and Agencies (Oronsaye)
2012/2013.
A number of issues relating to the management, core values, ethics and
reforms in the Public Service were raised in the Reports. A few of them
are:
i. The loss of security of tenure in the Civil Service and the need to restore
it;
ii. The neglect of merit in recruitment and promotion in many parts of the
Public Service and the need to urgently revert to the merit principle;
iii. The need to emphasize compliance with the provisions of the Public
Service Rules and their application to the day to day management of
parastatals and other agencies;
iv. The need to bridge the gap in remuneration between the core Civil
Service and parastatals as well as the observance of the principle of

comparability between the pay of Public Servants and their
counterparts in the Private Sector; and
v. The need to make constitutional provision for the appointment of
Permanent Secretary from the pool of Directors who must have spent
not less than ten (10) years in the directorate level of the civil for which
the appointment is to be made, etc.
The Committee further observed the urgent need for government to take
particular notice of the issues raised below with a view to ensuring that
measures are taken to facilitate their implementation. A few of them are:
i. The need for friction-free relationship between the political leadership
of Ministries , Departments and Agencies (MDAs) and their top Civil
Servants;
ii. The need to minimize disparities in public sector pay, particularly
between political appointees, public officers, civil servants and the staff
of parastatals;
iii. Reduction in the cost of governance through rationalization of
parastatals and elimination of ghost workers;
iv. Issues relating to ethics, core values, accountability and transparency in
the conduct of government business.

Chapter Four
State of the Public Service
A review of the previous Reports reveals mixed results of some successes and
challenges
Some Notable Successes
Although previous reports categorized many short comings and
constraints in the Public Service, several notable successes have been
recorded as a result of reform efforts in recent years.
These include:
i. service-wide application of information and communications technology
(ICT) to improve the systems, procedures and operations of the Public
Service, enhance its efficiency, and effectiveness, as well as its
accountability;
ii. enhanced organizational capacity of the institutional drivers of the Civil
Service namely: the Office of the Head of the Civil Service of the
Federation (OHCSF) and the Federal Civil Service Commission (FCSC)
to deliver their mandates more proactively and responsively through
institutional reviews, restructuring/organizational realignment and
process improvements, among others;
iii. review of the Public Service Rules (PSR), Financial Regulations and the
Civil Service Handbook;
iv. launch of key initiatives to promote an integrity and value-based Public
Service, including an innovative Public Service Integrity Project by the
Bureau of Public Service Reforms (BPSR), Statement of the
Commitment and Purpose of the Public Service, under the acronym-
STEP (Stewardship, Trust, Engagement, Professionalism) by the Office
of the Head of the Civil Service of the Federation, and adoption, at the
Continental level, of the African Charter on Values and Principles of
Public Service and Administration which was spearheaded under the
institutional platform of the African Conference of Ministers of Public
Service (CAMPS);
v. harnessing the experience and expertise of the Council of Retired
Permanent Secretaries and other talented retired officers, especially at the
directorate level, to address issues of core concerns both in the Public
Service and in governance;

vi. promoting good industrial relations in the Service by working in
collaboration and synergy with all the industrial unions in the sector to
improve the welfare of public servants and jointly implement productivity
measures which are aimed at optimizing the contributions of the Public
Service to national development
`Challenges
In spite of the successes mentioned above, the Civil Service still has to
contend with many challenges, which include:
i. Highly centralized, hierarchical and rule-driven system with rigid
methods and procedures, which put a limit to the extent of how far staff
can exercise proactiveness and innovations;
ii. Inadequate funding in terms of level and timely releases;
iii. Poor remuneration;
iv. Poor intra-service and inter-service coordination;
v. Inadequate working tools;
vi. Low morale and insecurity of tenure;
vii. Politicization of the Service;
viii. Stagnation at higher levels of the Civil Service;
ix. Erosion of Civil Service values and ethics as well as loss of
professionalism and esprit de corps;
x. Weak capacity, with noticeable gaps in the training of officers due to
inadequate funding for capacity building, lack of training need
assessment, absence of mandatory capacity building programmes, in
spite of the establishment of training and capacity building institutions
{eg the Administrative Staff College of Nigeria (ASCON), Centre for
Management Development (CMD), Public Service Institute of Nigeria
(PSIN), etc};
xi. Low ICT penetration in terms of bandwidth and infrastructure
backbone;
xii. Poor outcomes of Civil Service reforms;
xiii. Inappropriate staff deployment and assignment of responsibilities; and
xiv. Abuse of pension rights and maladministration of Pension Schemes.
xv. There had been some occasions when political consideration has
been accorded greater weight in the appointment to the post of

Permanent Secretary, resulting in relegating professionalism and
merit to the background with adverse consequences on the quality of
performance and service delivery. This is further compounded by the
fact, that, while Sections 171(3) and 208 (3) of the 1999
Constitution (as amended), require that the Head of the Federal
and Head of the Civil Service of a State must be appointed from the
body of the Federal and State Permanent Secretaries respectively,
there is no such requirement as to where a Federal or State
Permanent Secretary should be appointed from. This loose
provision has been abused in some States where non-civil servants have
been appointed as Permanent Secretaries;
xvi. The annual budgeting process continues to be mired by contentious
bickering, controversies and disagreement between the Legislative and
Executive arms of government. Budgeting has become so tortuous that
it often takes about six months into a financial year before the
Appropriation Act for the year is ready for implementation;
xvii. Current practice in most Ministries where Consultants are engaged at
high costs to prepare Ministerial budget, while sidelining the relevant
Departments and Officers, should be stopped;
xviii. The relationship between Civil Servants and Political Office Holders is
more often than not acrimonious. This needs to be properly managed
bearing in mind that both are enjoined to work harmoniously and in
partnership to advance societal goals.
Recommendations
i. For the FCSC, Section 158(i) of the 1999 Constitution (as amended) should
be reinforced, while the appointments of the Chairman and the
Commissioners is made by the President, only seasoned and retired Civil
Servants with cognate experience and integrity in Public Sector
management should be appointed;
ii. To amplify the provision of Section 169 of the 1999 Constitution (as
amended), a Civil Service Act should be enacted to provide a legal
framework for the effective management, sustainable funding and
coordination of the Civil Service. Such an Act, among others, should

prohibit transfers into the Directorate level of the Service and prescribe
mandatory training as basis for consideration for promotion to the middle
management level of the service (Grade Levels 12 to 14) and directorate
level (Grade Levels 15 to 17);
iii. Sections 171(3) and 208 (3) of the 1999 Constitution, dealing with the
appointment of the Head of Service to either the Federal or State Civil
Service be amended to read: "An appointment to the office of the Head of
the Civil Service of the Federation shall not be made except from among
serving Federal Permanent Secretaries”. The same principle should be
applied in the appointment of Head of Civil Service in the State;
iv. The Head of the Civil Service of the Federation (or of the State) should be
empowered to ensure that the Civil Service at each level and arm of
Government complies with the Public Service Rules;
v. There is the need for the Civil Service across the nation to operate common
rules and practices so that the citizenry is not confronted with different
procedures when dealing with each arm and tier of government;
vi. There is the need to strengthen the institutional management system
in the Civil Service in order to enhance its capacity to deliver on
government business. The Federal Civil Service Commission (FCSC) and
the Office of the Head of Civil service of the Federation (OHCSF) which are
responsible for managing and coordinating the Civil Service should be
insulated from political pressure particularly in the areas of personnel
recruitment, promotion, discipline and posting, in the true spirit of a merit
–based system, which is the hallmark of an efficient and effective Civil
Service all over the world. This is without prejudice to the application of
the principles of Federal Character;
vii. A Civil Service Coordinating Forum, to be constituted and chaired by the
Head of the Civil Service of the Federation, for promoting institutional
linkages, experience sharing, knowledge exchange, peer review and
effective coordination of the Services;
viii. For the appointment of the Permanent Secretary, unless an officer has
served and progressed from Grade Levels 15 to 17 in the Directorate
level of the Civil Service within a period of not less than ten (10)
years, he/she should not be considered for the post;

ix. It is important that at all levels, the Constitution specifies that a Permanent
Secretary should be appointed from the directorate level of the
relevant Civil Service, and must be a person of proven integrity who
has had not less than ten (10) years experience in the directorate
level, having progressed from Grade level 15 to 17;
x. There is the need to put in place a robust mechanism for ensuring rancor –
free planning and budgeting processes in order to obviate the regular
acrimony and misunderstanding that arises between the Executive and the
Legislative Arms of Government;
xi. The annual presentation to the National Assembly as required by the Fiscal
Responsibility Act should be the joint responsibility of the Federal Ministry of
Finance (FMF) and the National Planning Commission (NPC);
xii. Annual Capital Budget should originate from NPC and be sent to FMF for
funding, and forwarding of the Draft Budget for consideration of the
National Assembly;
xiii. Furthermore, in order not to overburden the MDAs, oversight functions
should be fully funded and captured in the budget of the National
Assembly;
xiv. Political Office holders and Civil Servants must recognize the need for
mutual respect, synergy and complementarity in their stewardship to
advance the cause of democratic governance and the promotion of the
common good;

Chapter Five
Management of the Public Service
Introduction
Public Service management has moved away from the maintenance of law and
order towards economic and political management to create wealth for the
country. In this regard, modern management practices such as those
recommended by the Udoji Commission e.g Project Management, Programme
and Performance Budgeting and Management by Objectives which are still
very relevant in modern day Public Service should be implemented in order to
be effective, efficient and result oriented.
Management of the Public Service
The management of the Public Service would encompass the application of
many management tools including some identified key issues such as
coordination of its various organs; records and information management to
sustain institutional memory; improvement of service welfare, capacity
building through training and retraining and planning and budgetary systems.
It has been observed that each arm and tier of Government is autonomous
within the sphere of its constitutionally allocated power/authority. The Civil
Service level of each arm of a tier of Government is also autonomous and has
little administrative relationship with the corresponding Head of Service.The
Head of the Civil Service of the Federation or Head of the Civil Service of a
State should be in a position to ensure that the Civil Service level of each arm
of Government is coordinated to enable them apply a uniform policy to
implement identified programmes. The offices of the Secretaries to the
Government across the country do not appear to keep adequate records of
Government activities. If they are kept at all, it is not in a form easily
retrievable, consequently, access to information urgently required for
decision making becomes problematic. It is evident that in the performance of
his/her responsibilities, the Secretary to the Government of the Federation
will perform more effectively if he or she has had adequate experience of the
inner workings of the Public Service in general and the Civil Service in
particular. Besides, it is a position which does not permit of a long learning
period and margin of error should be limited. It is therefore suggested that the
Secretary to the Government of the Federation should be a person who has
served at the top echelon of the Civil Service.

Under the guidance of various ministries, the Public Service organs and bodies
under them including corporations and parastatals should be closely
supervised to make sure they conform to the general policy drive of their
various political heads. It is clear from the foregoing that the Civil
Service/Public Service at all tiers and arms of government can only function
optimally when properly coordinated.
Recommendations
i. To amplify the provision in section 169 of the 1999 Constitution ( as
amended ), a Civil Service Act should be enacted to provide a legal
framework for the effective management, sustainable funding and
coordination of the Civil Service. This is necessary in view of the fact
that other institutions in the Public Service such as the armed forces,
police, parastatals, etc have enabling laws that guide their operations.
Such an Act, among others, should prohibit transfers into the
directorate cadre of the Service and prescribe mandatory training
(coupled with successes in corresponding examinations ) as basis for
consideration for promotion to the middle management cadre of the
Service ( Grade Levels 12 to 14 ) and the directorate cadre ( Grade
Levels 15 to 17 ).
ii. A Civil Service Coordinating Forum, to be constituted and chaired by the
Head of the Civil Service of the Federation, for promoting institutional
linkages, experience sharing, knowledge exchange, peer learning and
effective coordination of the Services;
iii. The National Council on Establishment should meet at least twice a
year.
iv. The state of the art Information Storage and Retrieval System manned
by well-trained professional Civil Servants should be installed in the
offices of the Secretary to the Government, Head of the Civil Service and
all Ministries, Departments and Agencies (MDAs ), as well as similar
offices at the State level;
v. All records in the Service should be properly archived in order to have
adequate and reliable records of government activities.

Institutional Memory for the Enhancement of National Capability
i. The Civil Service is the institutional memory of Government for
ensuring seamless continuity of the machinery of Government from one
administration to another;
ii. Apart from weak record keeping and retrieval system, the Services often
fail to tap from the knowledge and experience of their retired personnel
who most often than not seem to be totally forgotten in the scheme of
things without any opportunity to mentor future leaders of the Services.
Appointment of Permanent Secretaries
i. In some occasions, political consideration has been accorded greater
weight in the appointment to the post of Permanent Secretary, resulting
in relegating professionalism and merit to the background with adverse
consequences on the quality of performance and service delivery. This is
compounded by the fact that, while Sections 171(3) and 208(3) of the
1999 Constitution (as amended), require that the Head of the Civil
Service of the Federation and the Head of the Civil Service of a State
must be appointed from the body of serving Federal and State
Permanent Secretaries, there is no such requirement as to where a
Federal Permanent Secretary should be appointed from. Some unhelpful
practices in some States have shown the extent to which such a
constitutional gap could be abused.
Recommendations
i. Unless an officer has served and progressed from Grade Levels 15 to 17
in the Directorate Cadre of the Civil Service within a period of not less
than ten (10) years, he/she should not be considered for the post of
Permanent Secretary;
ii. It is important that at all levels, the Constitution specifies that a
Permanent Secretary should be appointed from the Directorate level of
the relevant Civil Service, and must be a person who has had not less ten
years experience having progressed from Grade level 15 to 17;
iii. Sections 171(3) and 208(3) of the 1999 Constitution, dealing with the
appointment of the Head of the Civil Service of the Federation and Head
of the Civil Service of a State, should be amended to expunge “....of a
State” in Section 171(3) and ....”of the Federation” in Section 208 (3) in
order that the Head of the Civil Service of the Federation can only be

appointed from the pool of Federal Permanent Secretaries, and the
Head of the Civil Service of a State from the pool of Permanent
Secretaries serving in the State bureaucracy.
Service Improvement and Welfare
i. The overall condition of service in the Civil Service in particular is
appalling in terms of pay, working conditions, systems and processes.
There are also wide disparities in the emoluments of officers in some
government agencies such as the Nigerian National Petroleum
Corporation (NNPC), Central Bank of Nigeria (CBN), National
Communications Commission (NCC) and other entities of Government.
A situation where a driver in those agencies earn more than the
Permanent Secretary in the Civil Service, is deplorable.
Recommendations:
i. A general improvement in the conditions of service such as housing,
healthcare (National Health Insurance Scheme), transportation and the
environment of work should be embarked upon to enhance
productivity of Public Servants;
ii. The wide disparity in the emoluments of officers in the Public
Service should be bridged to take cognizance of equal pay for equal
work;
iii. The provision of Section 173(3) of the 1999 Constitution to the
effect that “pension should be reviewed every five years or
together with any Public Service Salary reviews, whichever is
earlier” has never been implemented. It is necessary to do so to
stem corruption from serving officers and as part of social security
for the elderly;
iv. All cadres in the Civil Service should be professionalised;
v. There is need to undertake a comprehensive study of all MDAs in order
to determine and identify those factors inpinging on their service
delivery models. This is with a view to determining the issues involved
and the factors that inhibit effective service delivery, in the areas of
personnel capability, corruption, management weaknesses, lack of
focus, inappropriate service delivery platform and the wider political
and policy-related weaknesses, etc;

vi. The establishment profiles of all MDAs should be reviewed and
sanitized to ensure that they have appropriate complement of
manpower to carry out effectively the mandate of the MDAs.
Capacity Building
i. The capacity of the Civil Service is reflected in the ability of its
workforce to have the requisite skills and competencies for the
accomplishment of National strategic goals and objectives through the
depth of its knowledge, experience, values, ingenuity and creativity.
ii. However, the capacity of the Nigerian Civil Service to deliver on its
mandate was weakened by the massive purge of the 1970s and 1980s.
From then on, parastatals proliferated and the level of control
diminished, while the span of management was expanded without
corresponding adequacy of appropriate manpower for implementing
Government development initiatives. Ministerial development and
service functions were farmed out to parastatals which had very weak
management capacities. This served only to enhance corruption in the
system.
Recommendations:
i. The Civil Service must not compromise on training and capacity
building. Training is indeed the life wire of the Civil Service. A well-
funded system of regular and structured training arrangement both at
the levels of Office of the Head of the Civil Service of the Federation
(OHCSF) and of Ministries, Departments and Agencies (MDAs) should be
put in place;
ii. Structured training should be tied to career progression in the Service;
iii. The annual appropriation to training and development should be
significantly increased to 10% of emoluments.
Ethics of the Public Service
i. Political Neutrality: The Civil Service is expected to be apolitical and is
barred from partisan politics, though they have a right to vote.
ii. Professionalism and Political Loyalty: Public servants are expected to
render loyal service and provide professional advice to any government
in power.

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