Towards A Leaner Executive Structure For The Government Of Ghana

Preamble

The 1992 Constitution of The Republic of Ghana sets forth two articles, to ensure the flexibility of the President to run an effective and efficient Executive. The Articles guide the President in the discharge of his Office with respect to the shape and size of Government as follows:

Chapter 008: The Executive

76.

(1) There shall be a Cabinet, which shall consist of the President, the Vice-President and not less than ten and not more than nineteen Ministers of State.

(2) The Cabinet shall assist the President in the determination of general policy of the Government.

78.

(1) Ministers of State shall be appointed by the President with the prior approval of Parliament from among members of Parliament or persons qualified to be elected as members of Parliament, except that the majority of Ministers of State shall be appointed from among members of Parliament.

(2) The President shall appoint such number of Ministers of State as may be necessary for the efficient running of the State.

The Constitution further assigns the Parliament of the Republic of Ghana the right to define the number and demarcation of Local Government administration as follows:

Chapter 020: Decentralization and Local Government

241

 (2) Parliament may by law make provision for the redrawing of the boundaries of districts or for reconstituting the districts.

Background

Ghana has thirty-nine (39) Ministries in four classes, led by thirty-nine (39) Ministers and forty-eight (48) Deputy Ministers. Whilst defensible because it ensures focus on implementing important policies and urgent social transformations, having these eighty-five (85) political appointees may unintendedly frustrate the efficient running of the State because it;

a-  escalates the cost of running the Government and increases the transactional costs of integrating government work across multiple ministerial bureaucracies; and

b-      restricts efficiencies in the development and deployment of human resources, as well as the

c-       complicates the design and implementation of policies    

Additionally, since 1992, the expansion of Local Governments to 216 overlaid by ten regional ministries has fuelled widely held sentiments that Ghana has,

a.       too many political appointees, in portfolios that are fragmented and balkanised,

b.      created and distributed political appointments more to address party and regional power centres than the effectiveness and efficiency of Government, and  

c.   not developed an objective framework and progression mechanism for Executive appointees who perform, to underpin the longevity of governments, and that

d.  the breadth of responsibilities at the Ministerial level and the narrow scope at the local level respectively combine to make Local Government ineffective and inefficient. 

The Perspective of the Paper

Generally, the number of ministers reflects the Constitution, the personality of a President, and the dictates of the programme that the Government seeks to achieve. Therefore, there is no right size for any Cabinet. However, what is critical is the need to shape the perceptions of the electorate and other stakeholders about the ability and willingness of a President to build and lead an efficient, effective Government machinery.

This Government has correctly anticipated the general perception among Ghanaians that Government has become a sprawling, unfettered, growth-sapping entity. In response, it has called for a trimmed Civil Service, lower public sector wages, greater productivity, and more efficiency. Now, the President must signal that he will set the pace and example for trimming the Government and making it more productive and efficient starting from the highest levels of the Executive.  

The Proposal

First, Focus the Executive Structure on Core and Growth Priorities

In the next five to ten years, Ghana must balance three levers to drive growth and economic development as follows:

i.          Sovereignty in terms of our ability to define and enforce the nature and shape of ;

a.       our international relations and the integrity of our borders,

b.      the rule of law and security of life and property, and

c.       our financial and economic affairs

ii.         Social cohesion within an equitable framework, of sufficient basic social provisions to accommodate the different needs across the country for health and education, and

iii.        Economic robustness and resilience underpinned by;

a.       private sector development;

b.      developing and aligning infrastructure (specifically, energy, transport, and communications) to facilitate private sector growth; and

c.       developing the right mix of human resources to feed the needs of all sectors for skills, competencies, and capabilities.

The paper proposes a model, which eliminates about half of the positions designated as Minister or Deputy Minister and that could send a powerful signal of the President’s seriousness in making the Government a force for good, where: 

a-       The President will lead a more focussed Cabinet of eleven (11) Cabinet Ministers, preferably non-Parliamentarians to devote all their Government service to strategy development and executive leadership of the transformation agenda for Ghana; under whom will serve

b-      up to thirty (30) Parliamentarians as Non-Cabinet Ministers, including Regional Ministers, to lead the development and implementation of the legislative agenda of their sector, and to be sector spokespersons for Government; and   

c-       Deputy Minister Portfolios will no longer be necessary.

Second, Reduce the Sprawl of Local Government

Government must initiate a process to reduce the number from 216 Local Governments to a more manageable number of districts working under 10 regional administrations.  This should happen alongside an improvement in the quality of local government, an increase in the quality and quantity of social services and economic infrastructure, and a rise in the quality of those managing local government administrations, processes, and systems.  

Benefits of Consolidation 

First, this new approach will bring about synergistic mergers as it radically amalgamates ministerial portfolios under Cabinet Ministers. Members of the new Cabinet will have an increased scope and imperative to develop integrated strategies and policies to drive Ghana’s progressive transformation into a wealthier society.   

The smaller Cabinet of 11 ministers will lead and coordinate Government business around key themes to assure and drive economic transformation around five thematic areas, being,

i.          leading-edge education and technology development,

ii.         integrated management of forest resources, water bodies, aquaculture, and agriculture

iii.        accessible and reliable provision of health, social protection, social infrastructure, and  facilities for personal development

iv.        improved coordination and facilitation of commerce, enterprise, and economic infrastructure across all productive sectors 

v.         consolidating the leadership of the political economy across regions and districts for rapid national development

However, the re-organised Cabinet will see little change in the broad functions of those ministries dealing with sovereignty, general and personal security, and finance.  

Next Steps 

This paper intends to initiate debate and spark a conversation on how Ghana can consolidate Government, shrink the Executive, roll back the sprawl of district administrations whilst preserving existing services (schools, clinics, and government services), and increase such facilities based on population.

Government must create a framework and roadmap by which to achieve this as a legacy for Ghana. In addition, it must do so in a phased manner, and in conformity with the Constitution. It must involve the citizenry and allow time for Ghanaians to understand and accept the benefits.

Final Remarks   

If successful, this full process will be a win-win that brings the Government closer to the citizens and creates and supports a culture of efficient performance and effective delivery in Government.  It will save costs and increase the quality of management and leadership in government at all levels. 

AUTHOR

Michael Harry Yamson is the Chief Operating Officer of Ishmael Yamson & Associates; a strategy consulting and investor advisory firm that helps organizations improve their performance and profitability. He is a thought leader with interests in economics, governance, and investment issues. To see more from Michael, visit Ishmael Yamson & Associates.