2 There seems limited availability of research and study on the Cambodia’s civil service before and during the French colonization.3 RGC (1994) Royal Kram 06/NS/94, dated 30 October 1994, on the Promulgation of the Law on the Common Statute of Civil ServantsIntroduction to Cambodia’s civil serviceCambodia’s Personnel AdministrationCambodia’s personnel administration is governed by certain laws and regulations. The key civil service law that is still relevant and has impact on Cambodia’s civil service is the 1994 Common Statute of Civil Servants which stipulate the key components and processes of personnel administration in Cambodia ranging from recruitment to retirement and leave (RGC 1994). Cambodia’s civil service is seen to have been changed across the periods of time due to the consequences of regime changes and civil war. During the French colonization (1863-1953), Cambodia’s civil service had become modernized2 with the structure of career system, appropriate wage and professional training as adopted from the French rule, which is believed to provide supportive system for the colonial establishment and purposes. In the following years after gaining independence from the French, Cambodia’s civil service system was still seen to be largely influenced by the French legal system until 1975 (before the Khmer Rouge regime). (see Clayton 1995; Chandler 2008; and other sources on history of Cambodia). During the Khmer Rouge regime (1975-1979), the whole system had been destroyed and civil servants of the previous regime became the target of torture, imprisonment, and extermination. Only after the complete collapse of the Khmer Rouge regime and its organizational management during the late 1990s through the government’s win-win strategy, Cambodia has started to embark on various fundamental reforms to achieve its governance agenda, economic growth performance as well as rebuilding its civil service system from scratch. It can be noted that though peace being restored in the early 1990s, but the Khmer Rouge fraction was only defeated in late 1990s, which led to subsequent reform of public administrative system to comply with the 1994 civil service law (Law on the Common Statute of Civil Servants)3. The 1994 civil service law was administered by the 1996-established State Secretariat of Civil Service (SSCS), but due to reform movement, the Council for Administrative Reform (CAR) was established in 1999 to handle the National Program for Public Administrative Reform (NPAR) and work in parallel with SSCS. In such regard, various civil service-related regulations have been adopted to lead and manage Cambodia’s civil service including the administrative unification, civil service classification system, remuneration and payroll system and so on (see table 3).However, during such post-conflict situation, Cambodia’ civil service system was seen to be poorly equipped with low pay, and it was criticised as failing to provide a living wage and encouraging various corrupt behaviours in public service such as the seeking of second jobs, rent-seeking and poor public service delivery (World Bank 2013). Such remuneration challenges caused difficulty in attracting and motivating high skilled employees and encouraged the practices of various salary supplements such as performance-based pay / incentives in various donor-financed projects without clear policy guidance or oversight. In response, the government enunciated certain principles for guiding salary reform such as defining uniformity and equity of salary throughout the public service, introducing basic salary through folding from the different aspects of allowances and other additions, and ensuring fiscal sustainability of wage bill and so on. However, the challenges persisted regarding insufficient across-the-board increase in basic salary, lack of differentiating salary for different jobs, and lack of performance accountability focus (World Bank 2013).In managing and developing Cambodia’s civil service, especially the personnel administration, Ministry of Civil Service 43
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