■No annual workplan for the staff ■Challenges of performance management:In early 2015, a team of MCS with technical support from German Cooperation (GIZ) had conducted a review on the HR practices in seven ministries to understand the actual HR practices, and the key results show that the culture and system of PM are not in place, resources (finance and capacity) are limited for skill enhancement, and HR departments are dysfunctional to support HR practices (see table 4).(Source: adapted from MCS 2016c)Public-sector organizations in Cambodia are seen as lacking experience of cascading organizational objectives into staff workplan as revealed in the HR review report (MCS 2016c), which can be explained that their objectives may be ambiguous as the means of political control. According to Verbeeten (2008), the ambiguous objectives can be driven by some factors such as increasing political benefits and reducing politicians’ accountability for underperformance by referring overperformance in other areas.The limited ability of cascading and defining organizational objectives is believed to be affected by the limited capacity of public servants in general, as well as leadership and commitment of line managers in specific due to the lack of resources and skill management. Many studies have found that inadequate competence and leadership of public managers tend to cause difficulties in defining targets of performance measurement and communication of trust with their staff and other public institutions and stakeholders (Fryer et al 2009).Though the 2015 HR review report (MCS 2016c) shows that ministries do not have position descriptions, later on especially after the published PM guideline being consulted and introduced (MCS 2016d), the preparation of job descriptions has started and convinced 26 out of 39 ministries and agencies to provide clear role and responsibilities, and sufficient skills and experience needed for the recruited positions. The development of job descriptions is believed to provide clear purposes, duties, and responsibilities of each position and role, to identify the required skills and experience for applicants and also to assess the performance of employees in performing their role. However, only 9 ministries have successfully completed the assignments (such as Ministry of Commerce; Ministry of Culture and Fine Arts; Ministry of Education, Youth and Sport; Ministry of Land Management, Urban Planning, and Construction; Ministry of Justice; Ministry of Tourism; Ministry of Water Resources and Meteorology; Ministry of Women’s Affairs; Secretariat of Civil Aviation), which results in delaying the process of HR reforms as well as the implementation of PM such as the recruitment of civil servants based on skills and experience needed for specific jobs and performance assessment based on the requirements for the recruited positions (World Bank 2020).Moreover, civil service reform in Cambodia is seen to be challenged by not only limited resources, but also “the lack Table 4: Summary of review report on HR practice in Cambodia’s civil service in 2015 ■HR departments do not function properly and professionally to support each ministry. ■Ministries do not have position descriptions. ■Lack of appropriate and committed HR planning due to approval of new recruits is the discretionary power of MEF with coordinated role of MCS. As result, recruitment does not respond to skill or position requirement.Appointment and promotion are not based on performance and mostly at the discretionary power of head of ministry. ■PM practice is experienced in some ministries but mostly driven by pay-based performance of donor-related projects.Lack of capacity development plan (due to limited resources, lack of need assessment, supply-side training, lack of skill database management) ■55
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