Concept, Functions, Characteristics, and Role of Public Service

Concept of Public Service

Although the state mechanism began delivering various services and facilities for the welfare of its citizens from its inception, the actual concept of public service, emphasizing effective, citizen-centric, and people-oriented service delivery, emerged in the 1980s. It is believed that individuals elected to power through democratic processes should undertake more activities for public welfare. The government collects economic resources through taxes from citizens, and in return, citizens expect services from the state, which necessitates a more systematic approach to public service delivery.

The method of service delivery is influenced by a country’s geographical situation, economic, social, political environment, and the level of citizen awareness. Since the 1980s, the concept of public service has been defined differently across countries. In the UK, Margaret Thatcher introduced the Next Step Agency in 1982, and John Major launched the Citizen Charter in 1991. Malaysia introduced Vision 2020, Denmark adopted the One Step Agency, and various countries defined it under different names. Despite different names, it signifies services, facilities, and goodwill provided by the state to ensure public satisfaction.

Public service delivery is also known as public management, good governance in service delivery, citizen-oriented governance, etc. Alongside the concept of good governance, in the 2000s, the "New Public Service" concept developed, incorporating public participation, transparency, objectivity, citizen orientation, customer focus, rule of law, impartiality, and accountability.

In Nepal, efforts to make public services more objective, cost-effective, and efficient began in 1999 with the "Justice for the Poor, Income for the Deprived" program, mandating citizen charters in government offices. Since 2003, mobile services, the Good Governance Act of 2007, and the Public Service Delivery Campaign Guideline of 2008 have been implemented. The 2005/06 movement further emphasized the government’s commitment to citizens.

Public service acts as a bridge between the government and the people. As the guardian of citizens, the government must foster a cordial relationship with them. In a democratic society, people are sovereign. To develop the relationship between the government and citizens, the state must first identify public issues.

The state cannot be imagined without citizens.
Citizens are not abstract entities but living, rational beings.
Citizens are the foundation of national activities.
The government depends on citizens, not vice versa.
It is the government’s duty to fulfill citizens’ demands and wishes.
Citizens’ rights are not liabilities but assets of the nation.
Citizens expect guaranteed services from the government.

Introduction to Public Service Delivery

Public service refers to services provided by the state in accordance with the law to protect and promote the welfare, facilities, and interests of the general public by appropriately mobilizing and managing state resources.

Mobilization of public resources through government, private sector, or public-private partnerships.
Identification, management, and distribution of resources.
It is the state’s duty and citizens’ right.
An effective medium to establish interrelation between government and citizens.
A method to maintain national unity, integrity, sovereignty, good governance, and peace.
A way to establish social and economic equality.
Encompasses education, health, communication, transportation, and all basic needs.

Public service refers to “public goods, facilities, or any form of service provided by the service provider to the service recipient.” - Public Service Campaign Operation Guideline, 2008

Characteristics of Public Service

Diversity in services.
Accessible to all.
Social justice.
Rooted in law.
Use of technology.
Continuity.
Ubiquity.
Accessibility.
State ownership.
Transparency.
Accountability.
Adaptability.
Non-discrimination.
Perpetuity.
Fostering ownership.
Legality.
State control.
Uniformity.

Classification and Functions of Public Service

Based on the nature of services, public services can be classified as follows:

Traditional Services: Peace and security, revenue collection, defense.
Regulatory Services: Formulation and implementation of acts, laws, policies, and rules.
Basic Needs Fulfillment Services: Food, shelter, clothing, etc.
Human Development and Capacity Building Services: Education, health, etc.
Welfare Services: Services for neglected, oppressed, disabled individuals, social security, etc.
Recreational Services: Music, cinema, parks, theaters, etc.
Consultancy and Training Services: Various consultancy services.
Information and Record Services: Information collection, dissemination, record-keeping, etc.
Infrastructure Development Services: Agriculture, transportation, roads, structures, etc.
Business Promotion Services: Trade, industry, market promotion, etc.

Objectives, Importance, Role, and Strengths of Public Service

Protecting sovereign citizens.
Earning public trust by the government.
Maintaining good governance.
Establishing interrelation between state/government and citizens.
Fostering a sense of ownership among citizens towards the state.
Implementing the state’s responsibilities practically.
Fulfilling public demands to strengthen trust in the state.
Equitable distribution of democratic benefits and values.
Providing social justice and security.
Proper implementation of laws.
Establishing the legitimacy of governance.
Ensuring government presence at citizens’ doorsteps.
Protecting national unity, integrity, and sovereignty.
Providing easy, simple, quick, transparent services and facilities to ensure public satisfaction.
Ensuring overall economic, social, and other development of a welfare state.

Bases of Public Service

Constitution, acts, rules, policies, guidelines.
Fundamental rights, state’s directive principles, policies, and obligations.
Global norms, socio-economic environment.
International commitments, treaties, agreements.
Judicial precedents.
Demands and desires of service recipients.
Capacity of state mechanisms.
Political party manifestos, etc.

Provisions for Public Service

Equality in service delivery.
Just distribution of resources.
Aimed at good governance.
Effective and result-oriented service delivery.
Quality service provision.
Establishment of social justice.
Priority to basic services.
Adoption of recommendations from various administrative reform commissions and committees.

Overall, legal, institutional, and other provisions have been made as follows:

(a) Constitutional/Legal Provisions

The Constitution of Nepal (2015) includes provisions for fundamental rights, state’s directive principles, policies, and obligations, three-tier government, separation of powers, checks and balances, and constitutional bodies to ensure quality and impartial service delivery.
Local Government Operation Act, 2017.
Civil Service Act, 1993, and Regulation, 1994.
Work Performance and Work Division Rules of the Government of Nepal.
Good Governance and Management Act, 2007, and Regulation, 2008.
Right to Information Act, 2007, and Regulation, 2008.
Annual budget, periodic plans, and economic administration-related acts and rules.
Consumer Protection Act, 2018.
Corruption Prevention Act, 2002.
Public Service Campaign Operation Guideline, 2008.
Decision Process Simplification Guideline, 2008.
Integrated Service Center Operation Guideline, 2008, and Standards, 2012.
Various acts, rules, and guidelines for operating public interest and welfare state mechanisms.

(b) Institutional Provisions

Ministries, departments, constitutional bodies, and subordinate bodies of the Government of Nepal.
Provincial and local governments.
Public enterprises.
Civil society, consumer groups.
Non-governmental organizations (NGOs/INGOs).
Private sector.
Development partners.
Charitable organizations.

(c) Other Provisions

Public hearing system.
One-stop service system.
Grievance management.
Mobile services.
Spokesperson and information officer.
Integrated service system.
Toll-free telephone service.
Help desk.
Citizen charter.
Establishment of service centers.
Token system.
Complaint box.
Service with a smile.
Hello Government.
Service satisfaction survey.
Prime Minister with the People, Prime Minister at Citizens’ Doorsteps.
Use of websites and social media for information dissemination.

Prevailing Models of Service Delivery

Direct Service Delivery: State directly provides services.
Privatization of Services: Engaging the private sector in service delivery.
Alternative Service Delivery: Services provided by government and other sectors.
Decentralization of Services: Decentralizing authority and resources to provincial and local governments.

Weaknesses in Public Service Delivery in Nepal

(Institutional, Policy, Individual, and Procedural Weaknesses)

Lack of timely updates to laws.
Lack of coordination among service delivery agencies.
Imbalance between demand and supply.
Exclusion of stakeholders in law-making.
Unreliable and poor-quality services.
Centralized organizational structure.
Lack of coordination among organizations.
Corrupt practices.
Lack of skills, competence, and expertise in individuals.
Resource scarcity.
High service costs.
Nepotism and favoritism.
Procedure-oriented work style.
Cumbersome and lengthy procedures.
Multiple decision-making layers.
Lack of transparency and accountability.
Lack of public awareness.
Weak civil society.
Lack of trust between service providers and recipients.
Complex and unclear policies.
Policies not time-relevant or practical.
Weak consumer rights protection.
Lack of awareness and opaque work style.
Exclusion of stakeholders in policy-making.
Procedure-oriented service system.
Unjust distribution of public resources.
Policy ambiguity.
Political interference.
Lack of service quality.
Weak presence of private sector, NGOs, and civil society.
Duplication of work.
Failure to deliver services to targeted groups.
Overexploitation of natural resources.
Landlocked and remote geographical conditions.
Administrative arrogance in public bodies.
Weak human and ethical aspects in service providers.
Failure to incorporate recipients’ sentiments in policies and plans.
Indulgence in favoritism, flattery, delays, and pleasure-seeking (ABCDE).

Measures to Improve Public Service Delivery

(Policy, Institutional, Individual, and Procedural Reforms)

Update policies timely to remove ambiguities.
Include stakeholders in policy-making.
Ensure coordination among institutions.
Decentralize institutions.
Increase political will and administrative commitment.
Enhance effectiveness of mobile services and one-stop service systems.
Effectively implement citizen charters.
Develop human resources.
Improve mindset and work culture.
Increase public hearings, mobile services, and integrated service centers.
Structural reforms.
Reduce time, cost, procedure, distance (TCPD) and increase quality and customer satisfaction (QC).
Enhance transparency, accountability, and public participation.
Emphasize international-level technology.
Focus on quality and efficiency in services.
Promote collaboration and partnership.
Adopt e-governance for service delivery.
Update policies and organizations to be time-relevant.
Reduce decision-making layers.
Make monitoring and evaluation systems effective.
Properly implement reward and punishment systems.
Prioritize service prioritization systems.
Ensure voice, choice, and rights in services.
Pay special attention to resource management.
Implement citizen charters with compensation.
Make government, private, and other sectors more effective in service delivery.
Focus on one-stop service delivery.
Maintain high motivation and morale of service providers.
Make stakeholders more responsible for service delivery.

12 “P”s in Public Service Delivery

Identification
Infrastructure
Process
Responsibility
Access
Incentives
Testing
Evidence
Environment
Feedback
Restructuring
Change

Role of Stakeholders in Public Service Delivery

Legislature/Parliament

Timely amendments to laws.
Respecting public opinion.

Government

Proper implementation of laws.
Creating a conducive environment for all sectors.
Service delivery based on social justice.
Political and administrative commitment.
Acting as a guardian.

Judiciary

Efficient legal interpretation.
Swift justice administration.
Maintaining independence, impartiality, and dignity of courts.

Administration

Ensuring uniformity and promptness in work.
Clear delineation of administrative officials’ rights/duties.
Decentralization of authority.
Coordinative work style.
Reducing time, cost, procedure, distance, and increasing quality and customer satisfaction.
Abandoning administrative arrogance and serving the public.

Public

Pressuring for good work.
Being informed about laws and procedures related to services.
Fulfilling duties alongside obtaining rights.

Private Sector

Fulfilling responsibilities and duties.
Creating jobs alongside industry and business.
Partnering with the government in infrastructure development.
Focusing on social responsibility alongside profit.

Community Organizations

Fulfilling responsibilities.
Supporting the government.
Resolving community-level disputes/problems.

Donor Agencies

Increasing public awareness.
Capacity development activities.
Avoiding unnecessary interference.
Mobilizing development assistance per government policies/priorities.
Providing maximum support.

Basic Criteria for Measuring Effectiveness of Public Service

Time, cost, procedure, distance, quality, and customer satisfaction survey.
Grievance management (with compensation).
Public hearing.
Service delivery mechanism.
Reliability.
Choice of service.
Service assurance.

Principles of Public Service Delivery (Importance)

Principle of motivation.
Principle of reliability and transparency.
Principle of citizen-oriented government.
Principle of regularity and legality.
Principle of entrepreneurship.
Principle of market-oriented government.
Principle of result-oriented government.
Principle of decentralized government.
Principle of uniformity.
Principle of effectiveness.
Principle of effective law.
Principle of coordinative work system.
Principle of grievance and compensation.
Principle of community ownership-based market.

Methods of Public Service Delivery

Formulate clear procedures for service delivery based on experts, community, or consumer input.
Emphasize procedure simplification.
Arrange appropriate mechanisms and resources for service delivery.
Provide public services from a single location.
Adopt administratively decentralized systems.
Coordinate with public, private, non-governmental, and community organizations.
Develop and mobilize effective networks.
Adopt a one-stop system.
Incentivize those contributing to effective service delivery.
Adopt environmentally friendly processes.

Citizen Charter

Concept

The state and government are established by the people for their service. The primary duty of the government is to serve and protect citizens. The government comprises elected officials, hereditary systems, or those established through rebellion, along with appointed bureaucracy. However, the government has often failed to provide services, security, and facilities to the people. Bureaucracy has faced criticism for being unresponsive, opaque, delayed, misusing public property, and ruling over people. Efforts to find alternatives to bureaucracy were made, but they were ineffective, leading to the development of the concept of reforming bureaucracy.

Public service delivery has two streams: process-oriented and result-oriented. The process-oriented stream focuses on procedures, methods, and document verification, ignoring public convenience or outcomes. The result-oriented stream prioritizes public convenience and outcomes without violating laws or procedures, simplifying bureaucratic hurdles. Transforming from process-oriented to result-oriented service delivery means reforming bureaucratic flaws.

Reforming the bureaucratic perspective of public administration led to the development of the New Public Management concept. It encouraged shortening government processes, providing services like the private sector does to customers, and adopting private sector-specific methods in public systems. Reforms like decentralization, privatization, and procedure simplification were adopted to provide simple and quality services. Since people are the principal and the government is the agent in the governance system, the agent must be accountable to the principal (Principal-Agent Theory). The New Public Service considers people as citizens, not customers, for service delivery.

The policy leap in public service delivery has brought services closer to citizens, prioritizing public satisfaction. Providing regular, quality, transparent services is the primary responsibility of public administration. The concepts of transparency, accountability, participation, decentralization, and rule of law in governance and public service delivery led to the development of good governance. In 1991, UK Prime Minister John Major introduced the Citizen Charter, revolutionizing public service delivery in the UK, which was then emulated worldwide.

Introduction to Citizen Charter

A citizen charter is a written commitment by a public entity, clearly visible to service recipients, regarding the services it provides. It is also called a citizen rights charter, guaranteeing services from the state. The main objective is to make service delivery transparent, accountable, simple, and effective. It is information about the availability and acquisition of public services and goods.

It is a unilateral commitment by the service provider regarding procedures, service quality, time, cost, grievance management, and compensation for service recipients. The citizen charter is a tool to inform citizens about services, and fulfilling its commitments is the duty of the service provider. It establishes a relationship between the service provider and recipient.

Citizen Charter in Nepal

The High-Level Administrative Reform Commission, 1991, recommended implementing citizen charters to enhance public administration service delivery in Nepal. Following the Good Governance (Management and Operation) Act, 2007, citizen charters gained legal recognition in the civil service. The Good Governance Regulation, 2008, specifies that citizen charters must detail the services provided, their nature, procedures to be followed by recipients, time taken, responsible officials and their offices, fees, and required documents.

To make public entities accountable and reliable, and to ensure services are provided as committed, the Citizen Charter with Compensation Guideline, 2012, was implemented from January 29, 2013. This guideline mandates public entities to specify services with and without compensation in the citizen charter.

Characteristics of Citizen Charter

Type of service.
Cost.
Procedure.
Grievance management.
Compensation.

Principles of Citizen Charter (Importance)

Principle of quality service.
Principle of transparency.
Principle of service choice.
Principle of service assurance.
Principle of grievance management.
Principle of compensation.
Principle of improvement.
Principle of efficient service delivery.
Principle of service cost.
Principle of reward and punishment.

Necessity of Citizen Charter

Making public service delivery effective.
Enhancing the government’s image.
Bringing transparency to public entity operations and procedures.
Ensuring citizens’ rights to access public services.
Providing information on service procedures and required documents.
Advance information on service nature, responsible officials, time taken, fees, and grievance officers.
Supporting equitable distribution of democratic benefits.
Scientizing public services.
Empowering service recipient citizens.
Developing cordial relations between service providers and recipients.
Increasing bureaucratic efficiency and effectiveness.
Making bureaucracy accountable and ethical.
Bringing public needs and desires to the government’s attention.
Contributing significantly to establishing good governance.

Effectiveness of Citizen Charter

The effectiveness of citizen charters is measured by citizen satisfaction. The introduction of citizen charters with compensation has made employees more cautious to a large extent and increased public awareness. However:

Although required, not all offices display citizen charters prominently.
Some employees are unaware of charter contents.
Service recipients do not always seek services as per the charter.
Service recipients lack confidence in charter provisions.
Lack of intent or courage to claim compensation as per the charter.
No front desk in offices to inform about citizen charters, or if present, staff fail to explain satisfactorily.
Lack of culture to provide or receive services as per the charter.
Lack of government commitment to charter implementation.
No mechanism to monitor charter implementation.
Unclear legal status of citizen charters.
Compensation provisions becoming merely a scare tactic for employees.

Measures to Make Citizen Charter Effective

The effectiveness of citizen charters depends on public entities, employee behavior, public awareness, work systems, and work environment.
Public service providers at central, provincial, and local levels must be ready to deliver and behave as per the charter.
Services must be simple, timely, quality, cost-effective, and citizen-friendly.
Raise public awareness about citizen charters and encourage active use for obtaining services.
Introduce citizen charters in the private sector as well.
Enhance the effectiveness of citizen charters with compensation.
Create an environment where citizens can question public entities and claim their rights, and public entities can respond.

Role of Service Providers in Public Service Delivery

Public service delivery is the state’s primary function.
Enhancing service quality as per public needs.
Making all activities transparent.
Using modern technology for swift task completion.
Abandoning biases and ensuring good governance.
Eliminating work duplication and simplifying decision processes.
Taking responsibility and accountability.
Adopting impartial behavior.
Remaining steadfast in legal values and norms.
Paying due attention to social justice, good governance, and human rights protection/promotion.
Adopting cost-effectiveness in service delivery.
Prioritizing the interests of service recipients.

Rights of Service Recipients

Right to choose service options.
Right to receive services based on social justice.
Right to promote quality, objectivity, and impartiality.
Right to utilize state-provided services.
Right to feel ownership of public services.
Right to express demands, desires, and grievances to service providers.
Right to information.
Right to consumer education and rights.
Right to regular and quality services.
Right to equal access to public resources.
Right to compensation.

Responsibilities of Service Recipients

Compliance with laws.
Commitment to integrity.
Providing accurate information.
Not exerting undue pressure or influence on service providers.
Reporting irregularities to make responsible entities accountable.
Paying due taxes and revenues to the state.
Maintaining a positive attitude towards public services and providing necessary support.
Proper utilization of received services.
Prioritizing vulnerable groups in public services.
Acting as a good citizen.

Public service and its delivery are not just for service providers and recipients but are the most important functions of the entire state mechanism. The existence of the state or government is sustained through it. The success of the state or government is measured by the effectiveness of public service delivery. Therefore, public service delivery must be aligned with public expectations, result-oriented, and aimed at public welfare.

Practice Questions

Introduce public service delivery and explain its importance. (2+3)
Explain why the citizen charter is a cornerstone of public service delivery. (5)
Mention the provisions made by the state for public service delivery and write about the mediums of service delivery. (10)
Explain the concept of public service and mention its prevailing models. (5)
Explain the role of stakeholders in public service delivery. (10)
Confirm the statement that public service is the element maintaining national unity and integrity.
Highlight the importance of public service in a democratic system and explain the rights and responsibilities of service recipients. (4+3+3)
Mention the main types of public services and the role of service providers. (2+3)
Mention the mediums of public service delivery and discuss the weaknesses and improvement measures in Nepal. (4+3+3)
Shed light on the strengths of public service and discuss service delivery models. (5)
Highlight the basic criteria for measuring public service effectiveness and write about prerequisites for effective service delivery systems. (10)
As a good service recipient, what expectations do you have for state-provided services? (10)
Shed light on the provisions made by the state for services and discuss the mediums of public service delivery. (10)
Mention the principles of public service delivery and explain whether they are applied in Nepal. (10)
What is meant by public hearing? Explain the role of public hearings in public service delivery. (10)

3.1 Concept, functions, characteristics and role of public service