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Operational Reviews

Implementation Guide

UNOFFICIAL TRANSLATION

March 2012

Royal Government of Cambodia

Council for Administrative Reform

Operational Review Guide

General Secretariat of the Council for Administrative Reform Page i

OVERVIEW Operational reviews are designed to be used by Royal Cambodian Gov-

ernment Ministries and Agencies to review their functions, organisational

structure and processes to improve their capacity as institutions to meet

priorities. Reviews are not simply about change – it is possible that a re-

view will conclude that no significant changes are necessary. Even with-

out changes a review is useful to remind staff at all levels what their main

functions are and why the organisation is arranged in the way it is. It helps

unite all staff in a common view on the purpose and outcomes of their

work.

This Guide was developed to assist ministries, institutions to conduct op-

erational reviews with their own resources or the assistance of their devel-

opment partners and external consultants. The guide will be reviewed and

updated in the light of experience and comments from users. This is the

initial version. A set of methodological steps for each type of review is

available from CAR to assist ministries.

REASON TO CONDUCT A REVIEW

There are a number of occasions when it is good to review the way a min-

istry or institution functions or is organised:

When a new Strategic Plan has been produced setting out major priorities

and directions

When legislation governing the ministry or agency has been amended or

changed

When the government sets out a new policy or major function for the min-

istry or institution

When it is clear that clients or other stakeholders are not happy with the

service provided

On a periodic basis – if it has been five years or more since the last review

KINDS OF REVIEW THAT WE NEED

Although there is a logical sequence to the reviews – functional, organisa-

tional then process – it is not necessary to carry out all three in sequence.

The decision as to the appropriate review will depend on the needs and

priorities of the Ministry.

A functional review examines the major functions of the organisation,

and the activities and tasks defined by those functions. It is usually carried

out when an organization needs to adapt to a changing environment and so

update its responsibilities.

When it should be used: [1] When the environment in which an organi-

zation has evolved radically or when the mandate and mission of the or-

ganization have been changed. [2] After a strategic plan has been devel-

oped which sets out a new vision, goals and objectives for the organisa-

tion. It is important to compare these with the current functions of the or-

ganisation and to ensure that all goals and objectives are covered by the

priority functions and activities. [3] After new functions have been allo-

cated to the organisation so that they are carried out effectively


General Secretariat of the Council for Administrative Reform Page ii

An organisational review examines the way in which a ministry or

institution is structured and where the staff positions are located within

this structure. Organisational reviews usually result in advice on assigning

responsibilities among units to make the organisation more efficient and

more effective. They define the levels of management, reporting relation-

ships and allocate responsibilities among structural units like departments,

offices and units within the organisation.

When it should be used:[1] If the ministry or institution follows the sug-

gested sequence above, an organizational review should be conducted af-

ter a functional review to ensure the structure is appropriate to new or

changed functions. Otherwise, organizational reviews can be done without

functional reviews by just looking at the needs of the ministry of institu-

tion. Organisation reviews examine whether the same activity is carried

out in different departments [overlap and duplication] and also whether

some functions are not carried out [gaps]. [2] Periodically [say every five

years] to ensure that the structure is still appropriate to the activities car-

ried out by the organisation.

A process review examines the way a work processes are broken

down to activities and tasks within the organisation. It looks particularly

for needless repetition and unnecessary steps so that the process can be-

come more efficient – that is produce the same output for less cost – and

also more effective –that is produce what is intended at a the right quality.

Several processes may be reviewed at the same time. Success in process

reviews usually comes from involving all the staff who participates in the

process being reviewed as often staff members with simple tasks have a

clear idea of how to improve the process.

When it should be used: [1] If there is low client satisfaction in service

delivery. [2] Following an organisational review and for processes which

are affected by any structural change in the organisation

THE BEST APPROACH FOR MINISTRIES AND INSTITUTIONS

The choices are:

Conduct the review in-house using only staff from the ministry or in-

stitution– this is possible if there are staff within the ministry or institu-

tion who have the necessary expertise. In organisations with good person-

nel, human resources and planning departments it should be possible to

put together a team which can manage and conduct the review. Smaller

ministries and agencies may find this difficult. The great advantage of this

approach is that ownership is clear – this is not something forced from the

outside but something the organisation has chosen to do for itself.

Conduct the review with support from external consultants, either lo-

cal and/or international. This will depend on the availability of funds ei-

ther from the ministry or institution’s own budget or from development

partners. It is strongly recommended that a ministry or institution team

work alongside any external consultants both to ensure capacity building

for future reviews and to ensure that the review is seen as a ministry or in-

stitution initiative and the results are accepted as those of the organisation

and not the consultants.


General Secretariat of the Council for Administrative Reform Page iii

TABLE OF CONTENTS

OVERVIEW ............................................................................................................................................................. I

TABLE OF CONTENTS ............................................................................................................................................ III

GLOSSARY ............................................................................................................................................................ IV

A. INTRODUCTION ............................................................................................................................................ 1

B. DEFINITION OPERATIONAL REVIEW ............................................................................................................. 2

1. THE DIFFERENT KINDS OF REVIEW ............................................................................................................................ 2 2. REASON TO CONDUCT AN OPERATIONAL REVIEW ........................................................................................................ 2 3. THE TIME TO USE THESE METHODOLOGIES ................................................................................................................ 3

a. The time to use a functional review ........................................................................................................... 3 b. The time to use an organisational review .................................................................................................. 3 c. The time to use a process review ............................................................................................................... 3

4. PREPARING TO CONDUCT AN OPERATIONAL REVIEW .................................................................................................... 4 5. THE BEST APPROACH ............................................................................................................................................ 4 6. GETTING STARTED TO CONDUCT OPERATIONAL REVIEWS ............................................................................................. 4

C. BEST PRACTICES IN OPERATIONAL REVIEWS ................................................................................................ 5

1. INTERNATIONAL BEST PRACTICES ............................................................................................................................. 5 2. KEY LESSONS FROM NATIONAL EXPERIENCE ............................................................................................................... 6

D. CONDUCTING OPERATIONAL REVIEWS ........................................................................................................ 7

1. FUNCTIONAL REVIEWS .......................................................................................................................................... 7 2. ORGANISATIONAL REVIEWS .................................................................................................................................... 9 3. PROCESS REVIEWS .............................................................................................................................................. 11

E. REVISING MANAGEMENT FUNCTIONS ........................................................................................................ 14

1. REVIEWS AFFECT MANAGEMENT STRUCTURE AND PRACTICE ....................................................................................... 14 2. LINKING MANAGEMENT FUNCTIONS TO JOB DESCRIPTIONS ......................................................................................... 15

F. ANNEXES ..................................................................................................................................................... 17

Annex 1. Operational review process template .............................................................................. 17 Annex 2. Review committees template ........................................................................................... 19 Annex 3. Operational review report template ................................................................................ 20 Annex 4. Management Competency profiles across Cambodian Civil Service management levels 21 Annex 5. Managerial Responsibilities and activities across Cambodian Civil Service levels ........... 24


General Secretariat of the Council for Administrative Reform Page iv

GLOSSARY

Activities A related set of tasks usually within one administrative unit of an or-ganisation that contribute to one function

Resources Refers to all resources such as human, material, financial and time

Chain of Command A line of authority and responsibility along which orders are passed within a work unit and between different units

Core Ministry Functions include functions such as:

strategic and operational planning;

providing policy advice and evaluation;

setting standards for public services and monitoring performance;

information services;

HR management and development;

budget management;

developing regulations;

Function A related set of activities in an organisation leading to an objective

Hierarchy A system of grades of status or authority ranked one above the other

Line Authority A defined line of power or right to enforce obedience

Mandate Written authorisation from the government to a Ministry to carry out particular functions, usually embodied in the Law that defines the Min-istry

Operational Costs These include costs such as transport, stationery etc. for the support of activities such as this review

Operational Plan A subset of strategic work plan. It describes short-term ways of achieving milestones and explains how, or what portion of, a strategic plan will be put into operation during a given operational period

Organization A social arrangement which pursues collective goals, controls its own performance, and has a boundary separating it from its environment

Organogram Also known as an organization chart, is a graphical representation of the structure of an organization, showing groups and departments and their inter-connections and inter-responsibilities

Privatise To move a government function from the civil service to the private sector so that the only government control is through regulation. „Con-tracting out‟ is a partial privatisation where the function is carried out by a non-government agency but government control is kept through a contract with the agency.

Reporting Line A defined set of structure of who reports to whom in an organization, usually identified in an organogram

Responsibility Being responsible, or having authority, managerial freedom for a cer-tain function, activity, task or action

http://en.wikipedia.org/wiki/Military_unit


General Secretariat of the Council for Administrative Reform Page v

Senior Policy Maker Government official of high rank directly concerned with devising and leading policy e.g. Secretary of State or Director General

Span of Control The number of direct subordinates a supervisor has.

Special Operating Agencies [SOAs] are often formed from well-defined existing units within Ministries that have a clear focus on delivering specific outputs. One of the advantages of creating special operating agencies is that such bodies have delegated flexibility for the use of financial and hu-man resources to better meet their needs. This may mean, for exam-ple, salaries top-up can be paid in order to recruit specialist technical staff. That said, staff remain civil servants and the Heads of such agencies are accountable to Ministers in the “parent” Ministries.

Staff Costs These include all salaries and monetary allowances for permanent civil servants and these include all monetary and non-monetary bene-fits provided to permanent civil servants and normally fully covered in the budget

Strategic Plan Planning document for a Ministry that covers the medium term [five to ten years] and focuses on policy priorities for the sector in which the Ministry works

Structure A framework or system by which something is formed such as of ad-ministrative unit, building or organization

Task A discrete action by one or more staff that contributes to an activity

Delegate To hand over or assign some responsibility to a subordinate person or unit. This is more than simply telling the person or unit to carry out a task as they now have both responsibility and authority to act with-out referring back to their superior officer.

Validate To test whether some statement is true or accurate


General Secretariat of the Council for Administrative Reform Page 1

A. INTRODUCTION The Royal Government of Cambodia is committed to transforming the

Civil Service into an effective provider of public services to serve people

better. To achieve this vision, the Council for Administrative Reform

(CAR) has established the National Programme for Administrative Re-

form 2010 - 2013, which builds on the achievements of previous National

Programmes for Administrative Reform (NPAR).

The National Programme for Administrative Reform 2010 - 2013 address

two strategic objectives:

Making the Administration transparent, responsive, effective and

efficient

Improving values of service, loyalty, motivation and professional-

ism

One of the underlying tenets of the new NPAR is the need for improved

performance throughout the civil service to support the effective delivery

of public services. This requires the availability of the right staff with the

right skills in the right place, and effective structures, systems and pro-

cesses to support service delivery. Instruments have been developed that

provide for establishment of effective institutional and management

frameworks to support improved performance. These instruments will be

used as wedges to introduce effective structures, systems, processes and

practices and that are consistent with policy objectives.

Ministry and institutions are responsible for implementing the NPAR to

provide for improvements to the quality and delivery of public services.

The CAR Secretariat is responsible for facilitating the implementation of

the NPAR and for providing guidance and support to ministries. This

takes the form of policies, systems and instruments to gradually transform

the Administration.

This guide on how best to review operations in order to improve the deliv-

ery of public services to the people is a CAR publication. It has been de-

veloped to encourage uptake by Ministries and Agencies. As well as this

Guide there are three methodology guides to enable Ministries to self-

review their functions, organisation and processes. While each ministry is

best placed to determine what its service delivery priorities, processes and

mechanisms should be, the Government seeks to provide a framework

within which Ministries can improve service delivery and assess resource

needs.

Together with the three methodologies, the guide was developed based on

international and national best practices and the experience of ministries

which have conducted such reviews.



B. DEFINITION OPERATIONAL REVIEW An operational review is a process by which an organisation such as a

Ministry or Institution can assess itself and decide on necessary changes to

improve its operations. These reviews are an important part of organisa-

tional development and can provide a roadmap to better organisation and

service delivery. There are different kinds of operational reviews, includ-

ing functional, organisational and process reviews.

1. THE DIFFERENT KINDS OF REVIEW A functional review examines the major functions of the organisation,

and the activities and tasks defined by those functions. It is most useful

when a strategic plan has been developed which sets out a vision and mis-

sion for the organisation together with strategic goals and objectives. It is

important to compare these objectives with the current functions of the or-

ganisation and to ensure that all of the strategic objectives are incorporated

in the priority functions and activities. It is also useful when new functions

have been allocated to the organisation or when there is client dissatisfac-

tion, to ensure that the most important functions are being carried out ef-

fectively

An organisational review examines the way in which a ministry or insti-

tution is structured and where the staff positions are located within this

structure. It defines the levels of management and describes who reports to

who within the organisation. It allocates the major functions to structural

units like departments, offices and units within the organisation. So it of-

ten follows a functional review. Organisational reviews examine whether

the same activity is carried out in different departments [overlap and du-

plication] and also whether some functions are not carried out [gaps]. Or-

ganisational reviews usually result in advice for changes in the structure to

solve these problems and make the organisation more efficient and more

effective.

A process review examines the way a function is broken down to activi-

ties and tasks within the organisation. It looks particularly for needless

repetition and unnecessary steps so that the process can become more effi-

cient – that is produce the same output for less cost – and also more effec-

tive –that is produce what is intended at a the right quality. Success in pro-

cess reviews usually comes from involving all the staff who participate in

the process being reviewed as often staff members with simple tasks have

a clear idea of how to improve the process. Process reviews are particular-

ly important to ensure client satisfaction in service delivery.

2. REASON TO CONDUCT AN OPERATIONAL REVIE W When organisations begin they are usually designed to be the best at the

time of their design, within the social and political environment in which

they must operate. In Cambodia Ministries and Agencies usually have as-

pects such their Mandate, their Functions and their organisational structure

set out in the law which established them in the first place.

However, over time things may change in various ways – new responsibil-

ities may be given to the Ministry or Institution by the Government, or

new Departments or units created to carry out new activities. The process-

es for service delivery may be based on old, manual tasks and not be

adapted to newer ways with electronic or other technical improvements.



Whatever the reasons all organisations, not just civil service bodies, need

to periodically examine what they do, how they are structured to do these

things and the way they deliver services.

Such periodic reviews of the operations of the Ministry or Institution can

ensure that they remain up to date, efficient and effective. They can then

ensure that they serve the people better.

3. THE TIME TO USE THESE METHO DOLOGIES For many Ministries and Agencies it makes sense to review functions first

to ensure that what the organisation does is in accord with its Mandate and

the wishes of the Government and does not duplicate what other Minis-

tries or Agencies do. Once the functions are established then the organisa-

tional structure can be examined to see whether it fits the functions estab-

lished in the functional review. Then the processes of service delivery can

be examined and reviewed to see whether they are efficient and effective.

However there are situations where other types of operational review are

best suited to the situation facing the Ministry. If there are questions about

client or customer satisfaction in the delivery of the services that the Min-

istry is responsible for then an examination of those processes in a process

review might be the priority response. Similarly the creation or removal of

units or departments within the Ministry may raise questions about the

whole organisational structure and so an organisational review is the best

response. CAR staff can provide guidance on which reviews and what or-

der they should be addressed.

a. THE TI ME TO US E A FUNCTIO NAL R EVI EW

[1] When the environment in which an organization has evolved radically

or when the mandate and mission of the organization have been changed

[2] After a strategic plan has been developed which sets out a new vision,

goals and objectives for the organisation. It is important to compare these

with the current functions of the organisation and to ensure that all goals

and objectives are covered by the priority functions and activities.

[3] After new functions have been allocated to the organisation to ensure

that they are being carried out effectively

b. THE TI ME TO US E AN O RGANI SA TION AL R EVI EW

[1] Can be done after a functional review (if followed the suggested se-

quence) to ensure the structure is appropriate to new or changed functions.

Organisation reviews examine whether the same activity is carried out in

different departments [overlap and duplication] and also whether some

functions are not carried out [gaps].

[2] Periodically [say every five years] to ensure that the structure is still

appropriate to the activities carried out by the organisation

c. THE TI ME TO US E A P R OCES S R EVI EW

[1] If there is low client satisfaction in service delivery.

[2] Following an organisational review and for processes which are affect-

ed by any structural change in the organisation



4. PREPARING TO CONDUCT AN OPERATIONAL REVIEW The preferred procedure is for the Minister to appoint a senior officer to

lead the process, preferably at the level of Secretary of State, with two

teams. The first team is Supervisory in nature and will deal with the policy

priorities and directions to be taken, including the scope and timing of the

review. The second team, which will be more technical, preferably led by

a Director General or Director will be responsible for collecting the infor-

mation and drafting the report and recommendations. Full guidance on the

teams and their composition and responsibilities is given in the first step

of each methodology and a template for the creation of the teams is given

in Annex 2.

It is extremely important that the highest levels in the Ministry are com-

mitted to the review process and be seen to be fully supportive and com-

mitted to seriously considering all recommendations. As part of this com-

mitment it will be important that those selected for the working team are

formally appointed and given release from other duties to undertake the

tasks.

5. THE BEST APPROACH The two major choices are:

Conduct the review in-house using only staff from the ministry or in-

stitution – this is possible if there are staff within the ministry or insti-

tution who have the necessary expertise. In large organisations with

good personnel, human resources and planning departments it should

be possible to put together a team which can manage and conduct the

review. Smaller ministries and agencies may find this difficult. The

great advantage of this approach is that ownership is clear – this is not

something forced from the outside but something the organisation has

chosen to do for itself.

Conduct the review with support from external consultants, either

local and/or international. This will depend on the availability of

funds either from the ministry or institution’s own budget or from a

development partner. It is strongly recommended that a ministry or in-

stitution team work alongside any external consultants both to ensure

capacity building for future reviews and to ensure that the review is

seen as a ministry or institution initiative and the results are accepted

as those of the organisation and not the consultants.

6. GETTING STARTED TO CONDUCT OPERATIONAL REVIEWS This guide and related three methodologies were prepared in close coop-

eration with selected ministries through a series of focus groups and are

based on recognized best practices. They specify steps to undertake to

conduct a review. It is advisable that before undertaking a review, ministe-

rial staff review the documentation. Staff from the CAR Secretariat is

available for briefing purposes should it be required. An early decision to

be made relates to the use of external technical assistance. Should it be

deemed desirable to employ external consultants, ministries should ensure

that they retain ownership of the process of review and the results.



C. BEST PRACTICES IN OPERATIONAL REVIEWS

1. INTERNATIONAL BEST PR ACTICES There are a great many guides and manuals on conducting operational re-

views. Many of these of course focus on the private rather than the public

sector. They usually are classified according to the purpose and the focus

of the review. This section highlights elements common to these various

types of reviews. They all seek to gather information on an organization’s

operations, analyse this information to identify options for improvements

and make suggestions on how best to proceed to achieve desired results.

This guide and related methodologies were developed based on a review

of these practices.

Operational reviews are a form of systematic enquiry to assist in the re-

newal and strengthening of an organization, by enhancing its efficiency

and effectiveness and enabling it to deliver services that are more respon-

sive to the needs of the people and of businesses. They may be carried out

at various levels from that of a public administration or a ministry to indi-

vidual work unit or service delivery process. The fundamental component

of operational reviews is one of gathering information about:

what functions, activities or tasks are carried out

for what purpose

within what organisational structures

at what cost

This information is then used to formulate proposals that will lead to the

right things being done, in the right way, in the right place, and at the

right cost.

Doing the right things means that the activities being carried out in-

clude all those things that are necessary to do in order to discharge le-

gal obligations and meet policy objectives, and exclude those things to

which there is no legal or policy justification for devoting public re-

sources.

Doing things in the right way implies that the actions being taken will

be efficient in achieving the intended result; it also suggests that

standard processes and procedures have been established wherever

appropriate and are being adhered to by the staff concerned, and that

staff have received the necessary training to enhance their compe-

tence.

Doing things in the right place means that activities are being con-

ducted within the most appropriate unit to ensure coordination and

consistency in the work of the organization, without gaps or overlaps

between areas of responsibility.

The right cost is foremost a cost which is affordable and sustainable

for the organization; activities are of an appropriate scale with appro-

priate resources, and conducted without waste or inefficiencies.



2. KEY LESSONS FROM NATIONAL EXPERIENCE Discussions and interviews with six Ministries in Cambodia revealed a

range of experience with operational reviews from Ministries with little

knowledge or experience to those with clear understanding and a history

of implementing such reviews as part of their normal development.

Among the key lessons learned by these Ministries were the following:

CAR should support the reviews with clear guidelines as well as

straight forward methodologies

All staff should be informed of the decision to conduct a review and

its purposes clearly explained in order to reduce stress and uncertainty

among staff. Some staff are reluctant to participate as they fear loss of

power or benefits

The reviews resulted in clearer understanding of the work process and

responsibilities of departments and individual staff which resulted in

greater productivity

The reviews resulted in improvements in the functioning of the Minis-

try including:

o Better management and organisation of staff and work

o Capacity growth in staff such as planning and management

skills and results oriented work

o Smoother processes closer to international standards

o Greater understanding by staff of their own duties and responsi-

bilities

It is important to assign adequate numbers of staff, with appropriate

skills, and other resources to conduct the reviews and to train the staff

involved in the conduct of the reviews

Senior policy makers need to endorse the recommendations and be

committed to implementing changes arising from these



D. CONDUCTING OPERATIONAL REVIEWS This section provides an overview of the three types of operational review.

Self-administered methodologies for each type of review are available

from CAR and CAR staff is available to provide advice and support on

how a ministry or institution can best use the methodology for the particu-

lar review they wish to undertake. A generic timetable and list of activities

for conducting operational reviews, which can be adapted to suit the Min-

istry or Institution’s needs, is attached as Annex 1.

1. FUNCTIONAL REVIEWS

The methodology begins by going through the main processes in organis-

ing a functional review.

Setting up of teams: It proposes the setting up of teams, the composition

of the teams and the approach for the teams to learn their own roles in the

review and the fundamentals of a functional review and then to conduct

the review. It then goes through each of the main steps in undertaking a

functional review through literature review and discussions with staff and

stakeholders. It covers the analysis of functions from this material and da-

ta and forming these into a report which can be acted on by senior policy

makers.

Identifying functions: Functions are groups or sets of activities with de-

fined output – what the Ministry is aiming to do. They are the broad defin-

ing thrusts of the Ministry or institution

Activities are discrete sets of tasks which contribute to functions. Tasks

are lowest level of discrete parts of an activity

Functions in the legal mandate: Each Ministry has a Law that defines

what it is supposed to do – its Mandate. The Mandate defines the func-

tions at the time the law was written or amended.

However over time, other agencies may have taken over some of the func-

tions. The Ministry may have neglected some functions, or has lacked the

capacity to carry them out effectively. New functions may have emerged

not thought of when the law was written but which now engage the priori-

ties of the government. Often there is no real organisational home for such

emergent functions and they may be inappropriately located.

From the strategic priorities of the Ministry: Well organised Ministries

will have a strategic plan which contains a vision, goals and objectives for

the Ministry. If the Plan is current then it will shed a great deal of light on

the priorities of the ministry or institution and will help in identifying

those functions which should be promoted. ‘Objectives’ in such a plan

correspond to strategic functions. However the objectives in a strategic

plan may differ from what the Ministry actually does.

From discussions with staff: Of course one of the best sources of infor-

mation on what the ministry or institution actually does do is the staff of

the organisation. The team will need to interview the Directors and senior

Department staff on activities carried out and functions supported. Some

skill is required here as staff are likely to respond initially with what is set

out in the mandate of the organisation. The team will need to probe care-



fully as often the response follows the mandate not the actual work. It is

important to cross reference responses with concrete examples of what are

claimed to be the main functions in any part of the organisation.

From stakeholder discussion: Not all functions in an organisation direct-

ly relate to external stakeholders. If the functions have service delivery as-

pects then it is important to consult clients/customers [including support

agencies such as Development Partners and central ministries such as Fi-

nance, Planning and CAR]. The relevant step sets out a method for identi-

fying relevant stakeholders and conducting stakeholder meetings and dis-

cussions. These discussions should look for avenues for improvement not

simply criticisms and shortcomings. Consulting as wide a range as possi-

ble will help to avoid one sided and unbalanced views from one stake-

holder.

Analysing the functions: Once the team has assembled a set of infor-

mation from the various sources then it needs to analyse the material. Use

matrices or tables to align sets of functions from the Mandate, from the

Strategic Plan, and from interviews and meetings. This will help to identi-

fy various kinds of functions:

Identify those in more than one source as current core functions

Look for those in documents but not in activities [‘neglected func-

tions’]

Look for those in activities but not in documents [‘emergent func-

tions’

Proposing a new or revised set of functions: It is not common that there

would be a major or fundamental revision of functions following a review.

What is more likely is a change of emphasis with some functions, hitherto

neglected being given more prominence, and some new or emerging func-

tions being given formal recognition and assigned as to appropriate de-

partments or sections of the ministry. As a rule of thumb:

Policy functions should be undertaken by Ministries unless they can

be delegated

Functions should be privatized except when not in the public interest

Remaining functions should be decentralized except when not in the

public interest

Service delivery functions should be delegated away from the central

Ministry unless there is good reason not to do so

A template for an operational review report is attached as Annex 3

Final functional statement: A final set of functions must be approved by

senior policy makers in the Ministry and the supervisory team are those

with the responsibility to oversee and guide this process of approval. It is

well to remember that adding or subtracting functions may entail amend-

ments to the law, which can be complex and entail delay. A final set of

functions should clearly assign responsibility for each to only one De-

partment or unit



2. ORGANISATIONAL REVIEWS The methodology begins by going through the main processes in organis-

ing an operational review. It proposes the setting up of teams, the compo-

sition of the teams and the approach for the teams to learn their own roles

in the review and the fundamentals of an organisational review and then to

conduct the review. It then goes through each of the main steps in under-

taking a review through literature review and discussions with staff and

stakeholders. It covers the analysis of the structure of the organisation

from this material and data and forming these into a report which can be

acted on by senior policymakers. It is important to identify the scope of

the organizational review – the whole Ministry, service delivery, or back

office. It is also important to formalise the process [by prakas] and to in-

form all staff of the review.

Decisions must be made on organising the review– leader, team, work-

ers and the resources to complete the task. Ministries should allocate nec-

essary resources and time to the team. The more resources are allocated

the less time is required as tasks can be carried out concurrently. For ex-

ample, many Directors can be interviewed on the structure of their de-

partments at the same time.

Describing the organisation: The most common and efficient way to de-

scribe an organisation like a Ministry or government institution is through

an organogram. An organogram, also known as an organisation chart, is a

graphical representation of the structure of an organization, showing

groups and departments and their inter-connections and inter-

responsibilities. There are conventions or rules governing the layout of an

organogram with boxes representing positions and units and lines joining

these to represent lines of command and control. The relative position of

boxes on the chart represents levels of the hierarchy.

From the legal mandate: Each Ministry has a Law that defines how deci-

sions are made – its Mandate. The Mandate defines the structure and sys-

tem at the time the law was written or amended. Over time since the law

was written and passed, practices in the ministry or institution might have

changed. Because of new priorities or functions, or sometimes to personal

capacities of staff in particular parts of the organisation, some decisions

might be made at different levels than described in the law. For similar

reasons departments or sub-units might have been re-arranged in practice

to provide for new responsibilities. Not all of these changes may have

been formally recognised and incorporated into the law.

From the interviews with managers: The best way to describe and map

the ministry or institution as it actually operates is to talk to the responsi-

ble staff – the directors and bureau chiefs are usually the best placed to de-

scribe the staff and the reporting lines. A fairly formal interview should be

conducted with each manager in the organisation and careful written notes

kept. The manager should be asked if there is a diagram of the department

or unit as often these exist even if not formally set out. Among the key

questions to ask are:

How is the unit structured – who does the manager report to, who re-

ports to manager?



What is the structure of the department and what are the sub-units and

other parts of it?

How many staff work in the unit and what kind of staff are located in

unit – professional, technical, service or support staff? Ensure that

clear information is collected on both positions and staff.

What are the main responsibilities and activities of each of the staff? If

there are job descriptions go through these with the manager.

From discussions with staff: If possible check out the information with

some staff – but this must be done carefully to avoid any appearance

of going behind the manager’s back and creating distrust and discord.

It is important to verify reporting lines, main activities and tasks.

Analysing the information: As soon as possible after the interviews and

discussions write up the notes and produce an organogram for the depart-

ment or unit. This diagram should contain the whole structure of the de-

partment and every position which exist in the sub-units. Microsoft Visio

which is a part of the full Office Suite is a specialised program which in-

cludes a very comprehensive set of tools for drawing organograms and

setting up lines of communication. If this is not available there is also an

organogram drawing assistant in Microsoft PowerPoint. Microsoft Word

and Excel can also be used but their tools are quite rudimentary with simp-

ly boxes and lines. Once the material has been written up, feedback all in-

formation to the Director of the department and ask to have it checked and

corrected. This is very important as it is common for managers and staff to

forget or misremember information. Presenting the information in this

way emphasises the common ownership of the process and helps to en-

gage all staff in the review.

Developing an improved structure: Once the units have been confirmed

prepare a whole Ministry or institution organogram. Check the organo-

grams you have prepared against mandated and actual functions [from the

functional review, which is the recommended first step in this process] to

see whether all can be located in the structure. See what improvements can

be made to the organisation. Among the main points to consider are:

Clear and short reporting lines

Limited span of control – each person supervised directly takes about

10 per cent of a manager’s time

Viable sizes of departments and bureaus

o three to five Bureaus in a Department

o five or more experts to a Bureau

Every function should be formally allocated

Each function should be the responsibility of only one Department

Structures should take into account local history, culture and circum-

stances as far as possible

Equitable workloads between staff in comparable positions as far as

possible

Take note of front office/back office functions in the structure

o Front office – Service delivery, decentralised if possible



o Back office – Office management and administrative sup-

port [national and sub-national levels]

Structure should emphasise prioritised policies of the Ministry

Final recommendation and advice: Different organizational units should

perform different types of function but if there are changes to recommend

then a gradual approach to restructuring is best, so that:

transitions are practicable and affordable,

skills are not depleted;

Proposed structures should be compatible with relevant laws, remember-

ing that much of the original structure of the ministry or institution was set

out in the founding law. Where there are conflicts these should be high-

lighted and options explored for amending legislation. There is a template

for an operational review report attached as Annex 3

3. PROCESS REVIEWS The methodology begins in the same way as the preceding two by going

through the main processes in organising a process review. It proposes the

setting up of teams, the composition of the teams and the approach for the

teams to learn their own roles in the review and the fundamentals of a pro-

cess review and then to conduct the review. Because process reviews may

involve only one organisational unit such as a department or even a sub-

unit, it is important to identify the scope of the review – some parts of the

process may extend outside the department for example financial transac-

tions may involve the finance department. It is also important to formalise

the review [by Prakas] and to inform all staff of the review.

Definition of a Process Review

Formally a process review is the mapping of activities and tasks are per-

formed to produce output or result and may involve the fundamental re-

thinking and radical redesign of processes to improve performance in

terms of cost, quality and speed. Examples of processes in the Cambodian

civil service include:

Issuing a Driving License or Passport

Registration of a Company

Audit of a Tax Return

Release of a Grant

Effective process reviews are about positive change to improve service ef-

ficiency and effectiveness. They do not necessarily lead to:

Automation of existing ineffective processes

Sophisticated computerization of manual processes

Modifying organization structures

Downsizing – doing less with less

Reason to conduct a Process Review

Usually, processes are simple and efficient when originally designed.

They are user-friendly and employ contemporary tools and techniques.



Unfortunately there is a tendency for processes to become complex and

inefficient with passage of time with

addition of sub-processes to handle exceptions

changes in environment

increases in customer expectations

increases in volumes

Process reviews are often necessary to address dissatisfaction on the part

of customers or clients who find the process complicated or long. An ef-

fective process review should increase responsiveness to customer or user

requirements, improve accessibility and effectiveness while, at the same

time, maintain legal standards and being efficient or cost-effective for the

ministry.

Conducting the review: There are four steps in a Process Review –

Step 1: understanding the current process thoroughly,

Step 2: setting desired standards and indicators,

Step 3: constructing the new process by describing the new rules and pro-

ducing new forms and protocols, and

Step 4: selling the new process.

The first three of these steps involve the team working very closely with

the target department who control the process being reviewed and who

have much of the information needed to produce a better way of doing

things. However they may not realise or have formalised this knowledge

so the team will need to carefully draw it out by interviews, discussions

and workshops.

Understanding the current processes: This involves an ‘As Is’ study –

mapping current processes very explicitly so that each step and require-

ment is set down and agreed by the staff. This will enable an analysis of

root causes for inefficiencies by identifying problems and issues explicitly

and openly. Some careful work is needed here as staff can easily perceive

this process as an attempt to blame them for problems, or as seeking to

eliminate jobs.

Setting standards: Constructing a new and more efficient process in-

volves investigating best practice in other departments or ministries to see

how things could be done. It may involve consultations with stakeholders

such as clients to get a different picture or perspective on the process.

Constructing the new process: The new process may involve many tasks

including redesigning the structure of the unit controlling the process, re-

designing the tasks and jobs of people involved in delivering the service

and building their capacity through training, new equipment, new forms

and rules. It may also involve bringing in new laws and rules.

Selling the new process: This is essentially a problem in change man-

agement and should involve senior staff in the ministry as part of the pro-

cess. There needs to be a definite and formalised communication strategy

that addresses both internal communication to staff and external commu-

nication to customers and clients.



Major challenges in a Process Review: There are many challenges in

successfully implementing a process review. A major challenge is identi-

fying customer needs and performance problems in the current processes

[a part of the analysis]. A second major challenge is defining the opportu-

nities for re-engineering [a part of the redesign]. Implementing the re-

engineered processes will always be a challenge and staff often underes-

timates the time needed to have new processes working smoothly and the

resources necessary to make this happen.



E. REVISING MANAGEMENT FUNCTIONS

1. REVIEWS AFFECT MANAGEMENT STRUCTURE AND PRAC TICE All of the operational reviews may result in changes in the way a Ministry

operates. An important consequence of conducting the review may be that

management functions and responsibilities need to be modified to take ac-

count of new or changed functions, a modified organisational structure or

changed processes. This section looks specifically at potential changes in

the responsibilities of senior staff and the need to identify capacity gaps in

management that may result from change.

Hierarchy of management functions

According to Sub-Decree 20 ANK.BK dated on 30 April 1996 on the es-

tablishment and functioning of ministries and secretariats, there are six

generic positions at the top of the Cambodian civil service: 1) Director

General (or equivalent), 2) Deputy Director General (or equivalent), 3) Di-

rector, 4) Deputy Director, 5) Bureau Chief, and 6) Deputy Bureau Chief.

As for the establishment of the organizational structure, there are also sim-

ilarities in general and differences in particular. In general, all ministries

and institutions should have one General Directorate or more led by a Di-

rector General. However, for the General Inspectorate, some ministries or

institutions have one, while some others only have an inspector. In some

special cases, some ministries have General Secretariat as assistant to the

ministry on some tasks, such as in the case of the Ministry of Economy

and Finance and the Ministry Foreign Affairs and International Coopera-

tion. Although the establishment of the organizational structure is not all

the same, identification of the title and status of civil servants is based on

Sub-Decree 88 ANK.BK date 05 September 2001 on the principles of in-

tegration of civil servants into the new statute as follows:

o Secretary General, Director General, General Inspector (For the pur-

pose of operational reviews: Level One ranks)

o Deputy Secretary General, Deputy Director General, Deputy General

Inspector, Director, Inspector (For the purpose of operational reviews:

Level Two ranks)

o Deputy Director, Deputy Inspector, Provincial/Municipality Director of

technical line department, Governor of District/Khan (For the purpose

of operational reviews: Level Three ranks)

o Office Chief in central ministries/institutions, Deputy Provin-

cial/Municipality Director of technical line department, Deputy Gover-

nor of District/Khan (Level Kramka)

o Deputy Chief of Office in central ministries/institutions, Office Chief of

Provincial/Municipality technical line department (Level sub-Kramka)

Generic organograms were drawn up for large and small ministries show-

ing management positions and relationships in the hierarchy. Managers

are grouped into three levels:

Level 1 [Senior managers]

o Director General [includes Secretary General and Inspector

General]

o Deputy Director General, Deputy Secretary General and Dep-

uty Inspector General



Level 2 [Middle managers]

o Director, Inspector

o Deputy Director, Deputy Inspector, Provincial/Municipality

Director of technical line department

Level 3 [Junior Managers]

o Bureau Chief, Deputy Provincial/Municipality Director of

technical line department

o Deputy Bureau Chief, Office Chief of Provincial/Municipality

technical line department

These management responsibilities and competency profiles have been set

out in Annex 4which describes managerial responsibilities at each level

and key activities expected to discharge those responsibilities.

The competency profile [Annex 4] covers five managerial areas for each

level of management:

Policy and planning

Implementation

Monitoring and evaluation

Performance management

Relationship management

The competency profile shows [on the left side of the Table], for each

Level the expected performance indicators that will enable reviewers to

gauge whether the manager is performing appropriately for the level of the

position; for example, a Level One manager would be expected to ‘Devel-

op and prioritise policy” and could be judged on how well this is done.

On the right side of the table is a set of knowledge and skill requirements

that can be used to set out the managerial, as opposed to the technical, re-

quirements of the job description by level. These can also be used to as-

sess capacity development needs for staff already in position or for staff

aspiring to these positions. The knowledge and skills are arranged in an

ascending hierarchy; for example all managerial staff should have

‘knowledge of medium and annual planning processes’ used in their

ministry, but only managerial staff at or aspiring to Level One need

‘knowledge of policy development protocols’.

Management functions and responsibilities are set out in Annex 5 describ-

ing the key roles, responsibilities and tasks for each level of managers.

2. LINKING MANAGEMENT FUNCTIONS TO JOB DESCRI PTIONS Management functions, responsibilities and activities for all levels across

all five managerial areas have been set out in a Table in Annex 5 This Ta-

ble is designed to assist Ministries in developing the managerial rather

than the technical aspects of job descriptions for managers.

It is intended that Ministries and Agencies use these generic responsibili-

ties and activities selectively when developing job descriptions for the rel-

evant positions adapting them as necessary for local requirements and

adding such technical responsibilities and activities as are needed to flesh

out particular job descriptions in their Ministry or Institution. Similarly

with the competency profile the Ministry or Institution can use selected



aspects combined with technical inputs to fill in Job Descriptions for

managerial positions.

A further use is in capacity development. If existing managers are consid-

ered weak then this guide on the conduct of Operational Reviews can be

used as a diagnostic tool to set out areas of knowledge and skill needed to

strengthen their capacity to manage and then generic training can be

sourced to provide these, or specifically tailored courses might be provid-

ed. Similarly as part of succession planning or preparing earmarked staff

to prepare for promotion, courses addressing managerial knowledge and

skills at various levels can be identified, and staff sponsored to attend.



F. ANNEXES

Annex 1. OPE RATI ON AL RE VIEW PRO CES S TE M PLATE

This checklist and timetable is generic and can be adapted to each of the reviews as necessary

as the main activities for each are very similar. It is offered as a guide only and a checklist for

activities that should be carried out as part of the reviews. It should be localised to the needs of

the particular institution or ministry that is conducting the review.

The timeline is illustrative only and will vary between Ministries and between types of Review.

Aspects that will impact on the timeline include the size and scope of the Ministry, whether

there is an extensive sub-national network of offices and staff, the number of staff and/or con-

sultants involved in the review. The Steering Committee should adjust the timing as necessary

to reflect the actual situation in the organisation. The Working Group should meet regularly

and frequently to assign tasks and review progress, while the Steering Committee need only

meet at key points of progress or to deal with severe problems of implementation.

Activity Timing

1 Senior management decide on whether to proceed, and how the review will be supported in terms of budget and consultants

Weeks 1 and 2 2

Discussions on possible external support from develop-ment partners

3

Senior management identify potential members of Su-pervisory Team and the Working Group and submit the names to the Minister for endorsement and appoint-ment [see Annex 2 for templates for forming the teams]

4 Issue Ministerial parkas nominating Supervisory Team and Working Group

Week 3

5 Inform all relevant staff about the review and their roles in it

6 First meeting of supervisory team to plan timetable and activities and decide on scope and range of review

Week 4

7 WG members working through the methodological steps for the Review [with consultants if used]

Week 5

8 Assemble background documents [such as Organic Law, Strategic Plan, Organogram etc.] and assign reading

9 Develop research and interview questions and copy

Week 6 and 7 10 Set up the interview timetable and make appointments

11

Interview relevant staff [e.g. for Functional Review this would include all Directors and senior staff; for a Process Review this would include all staff connected with the process being reviewed] either individually or in groups



12 Meeting of supervisory team to review progress Week 8

13 Start detailed analyses Week 9

14 Analysis proceeds Week 10

15 Draft the report [see Annex 3 for a template for the re-port]

Week 11 and 12

16 Supervisory team considers draft report Week 13

17 Draft report circulated to relevant staff

18 Internal workshop[s] considers recommendations Week 14

19 Final draft of report produced Week 15 and 16

20 Minister endorses recommendations Week 17

21 Supervisory team sets out implementation process Week 18



Annex 2. REVIE W COMMI TTEES TEM PL ATE

These are suggestions on the composition of the teams for an operational review. Ministries and

Agencies are free to vary the composition according to their particular circumstances and needs

The supervisory team

Objective: To direct and give policy guidance and support to the working group and formally

endorse the recommendations for the minister

This team has the role of setting the scope of the review, providing the policy

guidance and presenting the results to the Minister and senior management and

policy makers. It should be chaired by a senior policy maker with the confidence

of the Minister, preferably a Secretary of State. It should include four to five

members who are senior officials and have a Director as Secretary [for example

the Director of Human Resources or Planning]

The Team will need to meet at the beginning and end of the process to set the di-

rection and conclude and formally prepare the final report and recommendations

on new or changed functions. Depending on the scope of the review it may need

to meet for a progress report from the working team part way through the review

process.

Chair Secretary of State or Director General

Members: 4-5 members

Senior officials, Director or above

The (technical) working group

Objective: To design the review, collect data and conduct analysis, to provide recommenda-

tions on possible changes to Ministry functions, structure or processes

This team has the role of collecting the data, analysing it and formulating recom-

mendations on any changes that emerge from the analysis. It reports to the super-

visory team. It should be chaired by an experienced Deputy Director General or

Director, with some background or training in organisational development if pos-

sible.

The membership will depend to some extent on the approach taken by the Minis-

try – if this is a stand-alone approach then more staff appointments will be neces-

sary [approximately 4-6 staff]. If several consultants are hired then 2-4 staff

should be appointed to the working group to act as counterparts and learn how to

conduct the process for themselves. If consultants are used they should meet with

the working group and be considered part of the team.

Chair Deputy Director General or Director with suitable background e.g.Planning

Members: Depends on whether external consultants are used – in either case members

should be given relief from regular duties to enable them to focus on the require-

ments of the review

Without consultants: 5-6 members

Technical staff with appropriate skills

With consultants: 3-4 members

Technical staff with appropriate skills



Annex 3. OPE RATI ON AL RE VIEW RE PO RT TE M PLATE

The purpose of an operational review report is to provide advice on the

optimum arrangement of functions, structure or process in the ministry or

institution. This includes discussion of the way the recommendations were

developed, required decisions and advice on changes to be incorporated

and where they fit. The report should also provide advice on further steps

to be taken and the likely risks and costs of those next steps.

The final draft functional review report should present the following in-

formation:

1. An executive summary of no more than four pages, outlining the key

points and main recommendations

2. A description of the approach used and methodology used. This

should also include information relating to the management arrange-

ments (and the rationale) put in place and the composition of the re-

view team

3. Past trends in benchmarks plus background analysis. The use of a

brief Drivers of Change style analysis may be useful

4. Details of stakeholder analysis differentiating between key stake-

holders, prime stakeholders and secondary stakeholders

5. Some details of the initial negotiations between key stakeholders

may be beneficial if this is politically possible. This would include for

example details of any resource agreement reached

6. Details of the communication strategy adopted, including how all

staff were informed of the process as well as the timetable of meetings

and interviews [in an Annex to the Report]

7. A description of the scoping, data collection and analysis phases in-

cluding details of the people consulted and the workshops held [in an

Annex to the Report]

8. A risk assessment of the likely impact of the review recommenda-

tions;

9. An implementation (migration) plan with allocation of tasks to

managers and the establishment of timelines and milestones. It is also

preferable that the implementation plan reflects the required linkages

with the Government’s budget cycle;

10. Outline main tasks to be completed such as further review[s], possi-

ble redeployment, training and redundancies;

11. Outline of the resources required to implement the review success-

fully and the likely costs of the review;

12. Identify any changes to laws and regulations that may be necessary

as a result of the proposed changes.



Annex 4. MAN AG EMEN T COM PE TEN CY PROFILES A CRO SS CAM BODI AN CIVIL SERVI CE M AN AGE MEN T LE VELS

Management Performance indicators Management Learning Objectives Level 3 Level 2 Level 1 3 2 1 1 Policy and Planning

Participates in Policy and Planning activities

Facilitates policy, strategic papers, and legislation de-velopment process

Develops and prioritises policy

Knowledge of policy development protocols.

Knowledge of policy research and analysis methods.

Knowledge of the executive/legislative decision- mak-ing process.

Knowledge of long term planning processes

Prepares annual work plan Prepares annual and me-dium term work plans

Leads medium and long term strategic planning

Knowledge of medium and annual planning processes

Skill to identify policy options and to state the feasibil-ity and expected outcomes of each policy option

Skill to prepare briefing papers on policy issues.

Skill to write clear and concise policy statements.

Skill in preparing clear and logical plans

Skill in writing plans incorporating priorities and time frames

2 Implementation

Manages operations Manages department re-sources

Ensures policy is imple-mented

Knowledge of standards setting

Knowledge of financial management

Uses technical guidelines to direct operational staff

Ensures technical guide-lines are practical

Maintains strategic direc-tions

Knowledge of legal mandates

Knowledge of operational management

Ensures financial guide-lines are practical

Ensures legal mandates are followed

Skill in writing clear standards for work

Skills in budgeting

Implements rules and standards

Sets rules and standards for Ministry

Skill in interpreting legal mandates

Skill to prioritize work assignments to ensure comple-tion by expected deadlines.

Accounts for budget spending

Skill to plan, schedule, implement and control projects and routine work



Management Performance indicators Management Learning Objectives Level 3 Level 2 Level 1 3 2 1

3 Monitoring and Evaluation

Timely progress of annual work plan

Monitoring of department related activities on a regular basis

Annual reporting of Minis-terial performance

Know how to prepare an annual report that summaris-es progress

Know how to develop an M&E plan to ensure timely and accurate reporting against these indicators

Monitors performance against clear standards or deadlines

Know how to identify suitable monitoring indicators for strategies and plans

Know how to interpret data and explain trends

Skill to apply data to assess results

Skill to edit and present arguments backed by data

Skill to develop quarterly routine monitoring forms

Skill to collect relevant data

4 Performance Management

Ensuring staff competency profiles are met

Conduct periodic review of function and structure of the department

Ensure all internal systems operate efficiently

Knowledge of the Employee Development Review phi-losophy, process and procedures.

Knowledge of employee counselling techniques.

Manage staff motivation Delegate authority to match responsibilities and capabilities, and hold staff accountable for agreed upon commitments

Conduct annual perfor-mance review of DDGs and selected personal staff

Knowledge of applicable disciplinary action legislation, regulations and procedures.

Skill to conduct Employee Development Review meet-ings.

Give clear instructions and lets people know what is expected of them with clear deadlines

Conduct and sign off an-nual individual perfor-mance report

Skill to take appropriate disciplinary and corrective ac-tion with employees for non-performance.

Report on the differences observed between the government payroll and the actual number of staff

Skill to counsel and guide employees regarding perfor-mance expectations, task completion, and overall per-formance issues.



Management Performance indicators Management Learning Objectives Level 3 Level 2 Level 1 3 2 1

5 Relationship Management

Ensure the integration of bureau work into depart-ment objectives

Provide recommendations to reform secretariats and concerned stakeholders on policy and guidelines im-provement

Participate in inter-ministerial activities and committees

Knowledge of good development process, techniques and strategies.

Knowledge of international business practices and cul-tural dimensions.

Knowledge of different interpersonal styles and how to effectively relate to each style.

Knowledge of the fundamentals for building effective interpersonal relationships.

Develops and maintains effective relationships with staff, colleagues and other stakeholders

Maintain relation with in-volved agencies

Consult with senior stake-holders on problem en-countered and provide suggestion for improve-ment

Skill in coalition building.

Promotes a spirit of coop-eration and manages disa-greements with others in ways that preserve ongo-ing working relationships

Actively identifies and de-velops key partners and strategic partnership op-portunities locally, nation-ally and internationally

Skill to manage interpersonal conflicts and resolve problems with employees, colleagues and other stake-holders.

Skill to tailor their image, communication and business manners to the positive image of themselves and the organisation.

Skill to use interpersonal behaviours that contribute to cooperative relationships.



Annex 5. MAN AG ERI AL RES PON SIBILI TIES AND ACTI VI TIES ACROSS CAM BO DI AN CI VIL SE RVICE LE V ELS

Level 1 [Senior Management] Positions

Director General Deputy Director General

Managerial function Key Responsibilities Activities Key Responsibilities Activities 1 Policy and Planning [strategic and

operational] Ministerial Managerial level policy devel-opment Medium and long term strategic planning

Identify policy initiatives and direction Lead policy development process Lead strategic planning process

Support policy development process Support strategic planning process Ensure awareness from the concerned stakeholder on Ministry policy and plan-ning development direction Dissemination of policy

Seek technical and financial support from concerned stakeholder on policy development and strategic planning process Lead the development of policy dissem-ination tools

2 Implementation [inc Budget and Financial management]

Ensuring policy implementation and strate-gic direction Ensure legal mandates are followed by setting rules and standards for Ministry Accountable for budget spending

Receive and follow-up reports on policy and planning implementation Take correction action to ensure im-plementation stays on track Ensure efficient and effective use of resources Receive and follow-up regular financial reporting

Ensuring the smoothness on the imple-mentation of annual work plan across department Reporting on policy and planning imple-mentation

Consolidate all reports received from different departments Identify challenge encountered and provide practical recommendations for problem solving

3 Monitoring and evaluation Annual reporting of Ministerial performance Lead annual performance review and reporting Receive and follow-up on regular monthly or quarterly performance reports

Supporting performance review team and committee; Ensuring all rules and regulations devel-oped and initiated by government pub-lic institutions are fully known and im-plemented at Department level

Facilitate annual performance review and reporting Regular monitor on the implementation of government rules and regulation

4 Performance Management [Leading and Managing change]

Smooth running of Ministry to deliver ser-vices Performance management and assessment of DDGs and personal staff

Ensure all internal systems operate efficiently Conduct annual performance review of DDGs and selected personal staff

Performance management of reporting position; Supporting DG to ensure the smooth running of Ministry to deliver services

Ensure all internal systems operate efficiently Conduct annual performance review of reporting directors

5 Relationship management [Organi-sational awareness and communi-cation]

Develop and maintain cooperation and communication inter-ministerial and with relevant stakeholders

Participate in inter-ministerial activities and committees Consult with senior stakeholders on problem encountered and provide suggestion for improvement

Supporting the cooperation and com-munication inter-ministerial and with relevant stakeholders

Report on cooperation and collabora-tion with concerned stakeholders



Level 2 [Middle Management] Positions

Director of Department Deputy Director of Department


operational] Facilitate policy, strategic paper, and legisla-tions development process; Annual and medium term work plan

Providing technical support in drafting policy, strategic papers, legislation, legal and regulatory frameworks; Disseminating laws, prakas, guidelines and other legal instruments. Prepare annual and medium term de-partment work plan

Timely deliverable of policy, strategic paper, and other legal framework docu-ments

Drafting the policy, strategic paper, and legislation; Preparing dissemination material and communicating laws, prakas, guideline and other legal instrument


Manage department resources; Ensuring the technical and financial imple-mentation guideline are practical

Receive and follow-up reports on a regularly basis of department related activities; Providing technical and logistical sup-port for the implementation of depart-ment annual work plan; Implementing and developing operation manual, regulation and policy.

Reporting on policy and planning imple-mentation; Monitor the use of department re-sources;

Consolidate all reports received from different bureaus

3 Monitoring and evaluation Monitoring on a regular basis of depart-ment related activities.

Conduct annual department perfor-mance review and reporting

Supporting the monitoring on a regularly basis of department related activities.

Facilitate the annual department per-formance review and reporting


Ensuring the coherency between the gov-ernment monthly payroll and the actual in the Department Manage staff performance of the depart-ment Ensure effectiveness functioning of the department

Report on the differences observed between the government payroll and the actual number of staff Conduct and sign off annual individual performance report Conduct periodic review of function and structure of the department

Consolidate training needs assessment Report training needs assessment and staff assessment Lead the development of staff motiva-tion tools and programs

5 Relationship management [Organi-sational awareness and communica-tion]

Communicating suggestions and recom-mendations for policy and guideline im-provement Technical relations with external partners

Provide suggestions and recommenda-tions to different reform secretariats and concerned stakeholders on policy and guidelines improvement Maintain relation with involved agen-cies

Supporting the communication process of suggestions and recommendations for policy and guideline improvement

Assist the DD in providing suggestions and recommendations to different re-form secretariats and concerned stake-holders on policy and guidelines im-provement Assist the DD in maintaining relations with involved agencies



Level 3 [Junior Management] Positions

Bureau Chief Deputy Bureau Chief


operational] Bureau annual work plan Participate in the Policy and Planning activ-ities

Prepare bureau annual work plan Actively participate in the drafting of policy, strategic paper, and legislation; Actively participate in the dissemination of laws, prakas, guideline and other legal instruments;

Supporting bureau work plan develop-ment process

Consult with every bureau staff member on the resource requirements for the next work plan


Manage bureau operation Providing the technical guideline to opera-tional staff

Lead the implementation of annual work plan Developing, improving and maintaining well organized administrative systems.

Assisting the bureau chief to manage bureau operation Assisting the bureau chief to set effec-tive and efficiency bureau goals

Providing technical guideline to bureau staff Providing efficient and high quality admin-istrative support; Maintain and distribute bureau supplies.

3 Monitoring and evaluation Timely progress of annual work plan Monitor the progress on the implemen-tation of annual work plan

Support as necessary timely progress of annual work plan

Assist the bureau chief in the monitoring of progress on the implementation of annual work plan


Ensuring staff competency profiles are met Manage staff motivation

Conduct training needs assessment Conduct individual staff assessment Identify staff problem encountered Develop staff motivation tools and pro-grams

Regularly monitor staff related activities Identify capacity development program required to achieve performance Observe staff motivation level Record staff problem encountered Daily record of staff attendance

5 Relationship management [Organi-sational awareness and communica-tion]

Ensure the integration of bureau work into department objectives

Manage day to day activities of technical and support staff

Implementation of operational matters Preparing correspondent letters; Keeping record of filing Coordinate procurement of bureau equipment/supplies in compliance with donor policies and procedures.

CAR Publications on operational reviews

This Guide is one of a series of publications by the Council of

Administrative Reform, Cambodia on the conduct of operational

reviews by ministries and institutions of the Royal Government

of Cambodia.

This Guide is a product of many discussions and consultations

with relevant line ministries and institutions.

This Guide will be used to help ministries and institutions in the

reviews of their operations with the view to improve mechanism

in providing public services more efficiently and to provide bet-

ter quality public services to respond to the needs of the people.

Further information can be found at:

- CAR website : www.car.gov.kh

- Email : [email protected]

- Phone : 023 221 470

- Fax : 023 221 449

http://www.car.gov.kh/

mailto:[email protected]

ministry of health, royal government of cambodiathe royal government of cambodia is committed to...

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