PUBLIC ADMINISTRATION IN ETHIOPIA Bacha Kebede Debela, Geert Bouckaert, Meheret Ayenew Warota, Dereje Terefe Gemechu (eds) CASE STUDIES AND LESSONS FOR SUSTAINABLE DEVELOPMENT Public Administration in Ethiopia Public Administration in Ethiopia Case Studies and Lessons for Sustainable Development Edited by Bacha Kebede Debela, Geert Bouckaert, Meheret Ayenew Warota, and Dereje Terefe Gemechu Editorial Team Annie Hondeghem, Trui Steen and Steve Troupin Leuven University Press Published with the support of VLIR-UOS (Belgium) KU Leuven Ambo University Addis Ababa University Published in 2020 by Leuven University Press / Presses Universitaires de Louvain / Universi- taire Pers Leuven. Minderbroedersstraat 4, B-3000 Leuven (Belgium). Selection and editorial matter © Bacha Kebede Debela, Geert Bouckaert, Meheret Ayenew Warota, Dereje Terefe Gemechu, 2020 Individual chapters © The respective authors, 2020 This book is published under a Creative Commons Attribution Non-Commercial Non- Derivative 4.0 Licence. Further details about Creative Commons licences are available at http://creativecommons.org/licenses/ Attribution should include the following information: Bacha Kebede Debela, Geert Bouckaert, Meheret Ayenew Warota, Dereje Terefe Gemechu (eds), Public Administration in Ethiopia: Case Studies and Lessons for Sustainable Development Leuven, Leuven University Press. (CC BY-NC-ND 4.0) ISBN 978 94 6270 256 1 (Paperback) ISBN 978 94 6166 363 4 (ePDF) ISBN 978 94 6166 364 1 (ePUB) https://doi.org/10.11116/9789461663634 D/2020/1869/49 NUR: 759 Layout: Crius Group Cover design: Frederik Danko Cover illustration: Ethiopia flag against city blurred background at sunrise, backlight (www.freepik.com/natanaelginting) Table of Contents Preface to the Handbook 9 Acknowledgments 11 About the Authors 13 I Introduction 1 Public Administration in Ethiopia: Case Studies and Lessons for Sustainable Development 21 Bacha Kebede Debela, Geert Bouckaert, Meheret Ayenew Warota, and Dereje Terefe Gemechu II Governance Introduction 37 II.1 Democratic Governance 2 Electoral Democracy and Citizen Life Satisfaction: The Mediating Role of Public Trust 41 Deribe Assefa Aga 3 Status, Challenges, and Prospects of the Ethiopian Developmental State (Emphasis on Democratic Governance) 65 Belayneh Bogale Zewdie 4 Assessment of Parliamentary Oversight Tools and Mechanisms Used by the Ethiopian House of Peoples’ Representatives (HoPRs) 85 Aklilu Wubet Lema, Challa Amdissa Jiru, Defferew Kebebe Tessema, and Frehiwot Gebrehiwot Araya 5 Public Engagement for Improving the Relationship between the People and the Parliament 113 Challa Amdissa JIru, Defferew Kebebe Tessema, and Aklilu Wubet Lema II.2 Partnerships and Participation 6 Multi-Stakeholder Partnership for Health Service Delivery in the Context of Developmental State: The Ethiopian Experience 141 Hiwot Amare Tadesse and Trui Steen 7 The Role of Participation in Development in Enhancing Local People Empowerment: The case of Bishoftu City Administration (BCA), Oromia 171 Bahiru Detti Heyi 8 Glass Ceiling and Glass Wall, and Women in Local Governments: Evidence from West Shoa Zone, Oromia National Regional State, Ethiopia 199 Bacha Kebede Debela II.3 Managing Institutions 9 Institutional Change and Reform in Oromia’s Public Sector: Challenges and 225 Hirko Wakgari Amanta 10 New Public Management and Path Dependence in Public Organizations in Ethiopia: A Multiple Case Study 251 Tewelde Mezgobo Ghrmay 11 The Analysis of the Gadaa System in Comparison to Western Democracy 279 Moti Mosisa Gutema III People as Human Resources Introduction 297 12 Meritocracy, Career Development, and Promotion in Ethiopian Civil Service 299 Henok Seyoum Assefa 13 Continuities and Changes in Human Resource Management in Oromia National Regional State: The Post 1991 325 Bacha Kebede Debela, Geert Bouckaert, and Steve Troupin 14 Strategic Contribution of Middle Managers in the Ethiopian Civil Service Organization 355 Alebachew Asfaw Yimer 15 The Ethiopian Civil Service System in Perspective: Implications for Leadership Roles 385 Adare Assefa Mitiku and Annie Hondeghem IV Performance and Quality Introduction 417 16 Managing Performance in Ethiopian Municipalities: Analysis of Technical Efficiency of Urban Water Services in Oromia National Regional State 419 Bacha Kebede Debela, Geert Bouckaert, and Steve Troupin 17 Performance Evaluation of Governance and Political System of Ethiopia: Post 1991 443 Gutata Goshu Amante 18 Key Factors Contributing to Time and Cost Overrun in Mega Sugar Construction Projects in Ethiopia 473 Temesgen Genie Chekol and Denamo Addissie Nuramo 19 Determinants of Public Servants’ Performance in Federal Public Service Sectors in Ethiopia 499 Kassa Teshager and Zekarias Minota V.1 Education 20 Institutional Autonomy of Ethiopian Public Universities: An Application of the European University Autonomy Scorecard Methodology 531 Solomon Gebreyohans Gebru, Annie Hondeghem, and Bruno Broucker 21 Outcomes and Challenges of the 1994 Ethiopian Education and Training Policy Reform 565 Challa Amdissa Jiru 22 Catch-up Trails: Public Administration Education and Professionalization Trajectories in Ethiopia 591 Kiflie Worku Angaw V.2 Policing 23 The Implementation of Community Policing in Addis Ababa City, Ethiopia 633 Wondem Meuriaw Ayalew V.3 Data Analysis 24 The Practices and Challenges of Community Policing in Reducing Crime: The Case of Adama City Administration. 661 Dessalegn Kebede Kedida VI Conclusions and Implications 25 Conclusions and Implications 691 Bacha Kebede Debela, Geert Bouckaert, Meheret Ayenew Warota, and Dereje Terefe Gemechu Preface to the Handbook Building an effective, inclusive, and accountable public administration has increasingly factored in the agenda of policymakers and other stakeholders, including the academia, in the effort to achieve sustainable development. This first Ethiopian Public Administration Handbook is the product of a joint effort by Ambo University, KU Leuven Public Governance Institute (Belgium) and the Addis Ababa University JOINT Project, funded by VLIR-UOS, Belgium (2018–2020). The handbook builds on the results of a TEAM project on “Strengthening Institutional Capacity to Support Public Administration and/or Development Management Programmes at Ambo University,” carried out by Ambo University and KU Leuven and funded by VLIR-UOS, Belgium (2013–2018). The handbook was coauthored by Ethiopian academics and practitioner- academics, also called “para-academics.” It is built on PhD studies and conference papers, written for a series of conferences organized within the framework of the TEAM and JOINT projects by project partners and other partners, including the Ethiopian Public Administration Association (EPAA), which was created by TEAM Project in 2016. The establishment of EPAA after over five decades of public administration teaching in Ethiopia has significant implications. The handbook addresses a wide range of timely crucial issues and will be a required reading for public administration students, practitioners, and theorists interested in public administration, public policy, and sustain- able development. In fact, it not only discusses public administration in the Ethiopian context but also creates a stepping-stone for teaching and researching issues related to public administration in Ethiopia in a manner that is conducive to achieving sustainable development. Bacha Kebede Debela Ambo University Geert Bouckaert KU Leuven Meheret Ayenew Warota Addis Ababa University Dereje Terefe Gemechu Ethiopian Civil Service University Acknowledgments This handbook would not have possible without the incredible support of a number of institutions and individuals. First, we are exceedingly indebted to VLIR-UOS (Belgium) for funding the TEAM Project “Strengthening Institutional Capacity to Support Public Administration and/or Development Management Programmes at Ambo University” between Ambo University and KU Leuven (2013–2018) and the JOINT project “Professionalizing Ethiopian Public Administration to Support Development Practitioners” between Ambo University, KU Leuven Public Governance Institute (Bel- gium), and Addis Ababa University (2018–2020). An eight-year grant allowed participants to pragmatically learn from project activities, such as the organ- ized conferences, to benefit from interaction between the partners and other stakeholders, and ultimately, to create this Ethiopian Public Administration handbook. The Projects were awarded to Geert Bouckaert (Flemish Promoter) and Bacha Kebede Debela (local promoter-Ambo University). Beyond partner institutions, interestingly, the grant was used to connect Ethiopian PA scholars and practitioners to each other and other international PA scholars and PA professional associations, notably the International Institute of Administrative Sciences (IIAS) and the Association of African Public Administration and Management (AAPAM). We are also grateful to the project partners – the KU Leuven Public Governance Institute, Ambo University, and Addis Ababa University – for supporting the projects, including the writing of the handbook. Furthermore, we are indebted to many individuals, especially to Martine De Koninck, Ann Hasendonckx, and Christel Maes (KU Leuven International Office); Annie Hondeghem and Trui Steen (KU Leuven Governance Institute); the KU Leuven Governance Institute secretariats, particularly to Anneke Heylen (Project financial manager) and Inge Vermeulen; and Wannes Verbeeck and Peter Verbeeck (both from VLIR-UOS) for their incredible support since 2012. This book also exceedingly benefited from Ethiopian PA scholars and para-academics who presented the papers at the conferences organized by project partners and other collaborators. Our thanks also goes to conferences participants, who diligently discussed the papers and contributed to the improvement thereof. We are profoundly thankful to the contributors of 12 Public Administr Ation in E thioPiA the handbook. We owe many thanks to reviewers at the Public Governance Institute (Belgium), who provided stimulating comments and suggestions. We are grateful to Leuven University Press for publishing this handbook. We are also indebted to Leuven University Press team, which did extraordinary work in preparing the volume’s publication. Bacha Kebede Debela Ambo University Geert Bouckaert KU Leuven Meheret Ayenew Warota Addis Ababa University Dereje Terefe Gemechu Ethiopian Civil Service University About the Authors Deribe Assefa Aga holds an MPA degree (2010) and a PhD (2016). His research interests include, inter alia, project management, gender studies, democracy, and local governance. Currently, he is an assistant professor of public management at Ethiopian Civil Service University. There he conducts research and teaches in the fields of public management, project management, and organizational behavior. Kassa Teshager Alemu (PhD), as an associate professor of development stud- ies. He teaches and conducts research at the Ethiopian Civil Service University. His research interests include issues related to local economic development, rural and urban development, and the role of actors in development. Hirko Wakgari Amanta is a lecturer and researcher at Oromia State University. Currently, he is a PhD student in development studies at Addis Ababa University. His research interests include institutions, governance, and sustainable development. Kiflie Worku Angaw is a lecturer at Dilla University. His main research interests are: public administration education and professionalization, development actors’ interface and global dynamics, the political economy of development, public governance and regional integrations, development policy and public institutions and ICT in public sectors. Frehiwot Gebrehiwot Araya (PhD) was an assistant professor at Addis Ababa University, Department of Public Administration and Development Manage- ment. She is currently serving as head of the Addis Ababa City Public Service and Human Resource Development Bureau. Her main research focuses on public policy and public finance Henok Seyoum Assefa (PhD) is a deputy chief executive officer at the Ethio- pian Press Agency and vice president at the Ethiopian Public Administration Association (EPAA). He has been teaching and researching in the areas of public administration and policy for over ten years. His areas of research interest include social policy, governance, and media. 14 Public Administr Ation in E thioPiA Wondem Meuriaw Ayalew is a lecturer of public management and policy at Assosa University and a PhD student at Addis Ababa University. His main research areas include public service delivery, public private partnership, and governance. Bruno Broucker is a visiting professor at the KU Leuven Public Governance Institute, a higher education expert at the Institute of Tropical Medicine, and an elected member of the executive committee of the European As- sociation for Institutional Research (EAIR). He has published several international articles and book chapters on higher education governance and policy and is lead editor of Higher Education System Reform (2019). ORCID: 0000-0002-6961-7098. Bacha Kebede Debela is an assistant professor at Ambo University (Ethiopia) and president of the Ethiopian Public Administration Association (EPAA). He holds a PhD in Social sciences from KU Leuven (2017). His main research interest areas include performance management, sustainable development, local government and governance, and developing countries. Temesgen Genie Chekol is a lecturer at Dire Dawa University, Institute of Technology, School of Civil Engineering and Architecture. His research interests are construction economics, finance, environment, and sustainable development. Bouckaert Geert is a professor of public management at the KU Leuven Public Governance Institute, Belgium. He is past president of the International Institute of Administrative Sciences and of the European Group for Public Administration. He is a member of the UN Committee of Experts on Public Administration. Solomon Gebreyohans Gebru is a PhD researcher at KU Leuven, Belgium, and an assistant professor of political science and former Director of Institu- tional Transformation and Quality Assurance at Mekelle University. He has published articles and book chapters. His PhD focuses on higher education governance in Ethiopia. ORCID: 0000-0002-1759-8884. Tewelde Mezgobo Ghrmay (PhD) is an assistant professor at Mekelle University. His main research interests are new public management and strategic management. About thE Authors 15 Amante Gutata Goshu is a lecturer in public administration and development management at Addis Ababa University, as well as being a freelance consult- ant since 2008. His research interest areas are governance, urbanization, development, public policy, and marketing. Moti Mosisa Gutema is an assistant professor of public policy, the director of the Deliverology Coordination Office at Dilla University, and a researcher at the Institute of Strategic Affairs. Bahiru Deti Heyi (PhD) is an assistant professor at Dilla University, Ethiopia. He is chairman of the board of the Ethiopian Public Administration Associa- tion (EPAA); vice chair of Ethiopian Society for Public Administration and Management (ESPAM), African Association for Public Administration and Management Chapter in Ethiopia; and member of the Economic and Development Association of Oromia (EDAO). His research interests are in the areas of public policy, public finance administration, local government, governance, public service delivery, urban governance and management, and development management. Annie Hondeghem is a full professor at the Faculty of Social Sciences at the KU Leuven and director of the Public Governance Institute. She is a specialist in the domain of public personnel management, policy on equal opportunities and diversity, and change management. She is also conducting research on asylum, migration, and integration. She is the editor (together with prof. James Perry) of Motivation in Public Management (2014). ORCID: 0000-0002-0900-3959. Challa Amdissa Jiru is a lecturer and a PhD student at Addis Ababa Univer- sity, Department of Public Administration and Development Management. His main research interests are public sector performance management, reform, and leadership Dessalegn Kebede Kedida is a deputy commander and research and com- munity service directorate director at Oromia Police College. He graduated from Oromia State University with a BA degree in HRM and holds an MBA in management from Ambo University. His research interest focuses on police human resource management practice and its development. 16 Public Administr Ation in E thioPiA Aklilu Wubet Lema is a lecturer at Addis Ababa University, Department of Public Administration and Development Management. His research forces on decentralization and fiscal policy Adare Assefa Mitiku obtained his PhD from KU Leuven, Public Governance Institute. He is currently working for Defense Construction Enterprise – a government owned Construction Company in Ethiopia. His main research interests include leadership and governance, organizational studies, human resource policies and practices, politico-administrative relations, and training and development. Denamo Addissie Nuramo (PhD) is an assistant professor and chair holder at Addis Ababa University, Institute of Architecture Building Construction and City Development. His research interests include sustainable built environ- ment, construction economics, automation in the construction industry, and alternative construction materials. Zekarias Minota Seiko is a lecturer at Ethiopian Civil Service University and PhD candidate in environment and development, Addis Ababa University. His research interests include FDI, impact evaluation, labour dynamics, climate change, and livelihoods. Trui Steen is professor of Public Governance and Coproduction of Public Services in the Public Governance Institute at KU Leuven, Belgium. Her research includes topics such as professionalism, public service motivation, professional-citizen co-production of public services, central–local govern- ment relations and collaborative innovation in the public sector. She chairs the IIAS Study Group on Co-production of Public Services. Hiwot Amare Tadesse is a lecturer at Ambo University. Currently she is a PhD candidate at KU Leuven University, Belgium. Her research interests include partnerships, state-society relations, governance, and the develop- mental state. Defferew Kebebe Tessema is a lecturer at Addis Ababa University, Depart- ment of Public Administration and Development Management. His research focuses on local economic development and urban governance. About thE Authors 17 Steve Troupin (PhD) is a lecturer at the Public Governance Institute, KU Leuven, Belgium, and strategic projects officer at the International Institute of Administrative Sciences (IIAS). He has published in peer-reviewed journals. Alebachew Asfaw Yimer (PhD) is an assistant professor in public manage- ment in the College of Business and Economics at Bahir Dar University. He conducts research on management in the public sector, with an emphasis on leadership, strategic management, organizational change, organizational culture, and performance management. Belayneh Bogale Zewdie is a lecturer in the Department of Public Manage- ment, Faculty of Business and Economics, Kotebe Metropolitan University, Addis Ababa, Ethiopia. I IntroductIon