2010年-世界发展银行全球_Lao_PDR_-_Civil_Service_Pay_and_Compensation_Review___Attracting_and_Motivating_Civil_Servants_107页_2mb

Lao PDR Civil Service Pay and Compensation Review Summary

Core Content

This report, titled "Civil Service Pay and Compensation Review: Attracting and Motivating Civil Servants", was prepared by the World Bank in June 2010 for the Government of Lao PDR (GOL). It aims to support the GOL's efforts to reform the civil service by providing an analytical and empirical basis for understanding current pay and compensation practices, and how they affect the recruitment and motivation of civil servants.

The report is part of a broader initiative to modernize public administration in Lao PDR, with the Public Administration and Civil Service Authority (PACSA) leading the drafting of a new Civil Service Management Strategy for 2010–2020. The study highlights the need for reforms in compensation and human resource management (HRM) systems to enhance civil service performance and efficiency.

Main Objectives

1. To assess the adequacy of civil service compensation in relation to the labor market and other sectors.
2. To evaluate the role of incentives in attracting and retaining civil servants.
3. To provide a foundation for future policy decisions and reforms in the civil service.

Key Findings

Civil Service Overview

• The Lao civil service is relatively small, with 1.8 civil servants per 100 population.
• Health and Education sectors constitute two-thirds of the civil service workforce.
• The civil service wagebill has grown significantly over the past decade, reaching 28.5% of total expenditure in FY2008/09.
• The wagebill as a share of GDP has increased from 2.7% in 2000 to 5.5% in 2008, raising concerns about affordability and fiscal sustainability.

Compensation Structure

• Civil servants receive a mix of base salary, monetary allowances, and in-kind benefits.
• The indexed salary grid is based on educational qualifications, with base salaries compressed (top earners earn 3.1 times the base salary of those at the bottom).
• Position-based allowances play a critical role in compensating senior roles, leading to a higher total compensation range (up to 4.0 times for directors general).
• Per diem savings can significantly supplement regular earnings, especially for technical staff and managers, potentially exceeding regular compensation.

Adequacy of Compensation

• Civil service compensation is generally lower than private sector and SOE counterparts, especially at higher professional levels.
• However, non-regular compensation and non-monetary benefits (such as job security, social status, and in-kind benefits) make the civil service more attractive for many individuals.
• The private sector premium is reduced when considering non-monetary benefits, particularly for senior officials.
• Mean earnings in the private sector (excluding agriculture) are slightly higher than in the civil service.
• Civil servants with secondary schooling or higher earn 1.5 to 2 times more in the private sector than in the civil service.

Incentives and Motivations

• Civil servants are motivated by job security, flexible work environment, social status, and in-kind benefits.
• Many civil servants combine regular salary with additional income from moonlighting, extra payments, or informal work.
• Urban planners and agriculture and forestry staff have more opportunities for additional income.
• Teachers and medical personnel report the lowest and highest levels of additional income, respectively.

Challenges and Recommendations

• The civil service wagebill is a growing fiscal concern, with the need for compensation reform and establishment control.
• Equal pay for equal work is not consistently applied, as individuals in the same role receive different base salaries.
• The report recommends:
  • Simplifying the pay system to improve transparency and fairness.
  • Reforming the grading structure to better reflect job responsibilities and qualifications.
  • Improving payroll management systems to ensure accurate and timely compensation data.

Conclusion

The report concludes that while the current civil service pay and compensation system has limitations, it remains attractive due to non-monetary benefits and stability. A rational pay system is needed to improve recruitment, retention, and performance. The three key steps for reform are: simplification of the pay system, reforming the grading structure, and enhancing payroll management.

Key Stakeholders and Partners

• PACSA and MOF were key partners in data collection and analysis.
• Development partners such as ADB, European Commission, and UNDP were involved in the process.
• Fieldwork included FGDs, IDIs, and interviews with officials from various sectors and levels of government.

Methodology

• The report used a dual analytical approach: comparing jobs and workers.
• Data sources included the Lao Expenditure and Consumption Survey (LECS), employer surveys, and focus group discussions.
• Compensation data was analyzed across different sectors and positions, including education, health, and central ministries.

References and Appendices

• The report includes annexes detailing regulations, interview guides, benchmark jobs, and focus group methodologies.
• Figures and tables are provided to illustrate key findings, such as the civil service wagebill, compensation differentials, and perceived criteria for promotion.

This review provides a comprehensive overview of the Lao civil service pay and compensation landscape, offering insights into the challenges and opportunities for reform.