IMF-帕勞共和國(guó)：管理政府就業(yè)和補(bǔ)償?shù)募夹g(shù)援助報(bào)告（英）

TECHNICALASSISTANCETECHNICALASSISTANCEREPORTREPUBLICOFPALAUFEBRUARY2024PreparedBySébastienWalker,ChristopherBender,CarolinaBloch,andCélineThévenotFiscalAffairsFiscalAffairsDepartment2.每日分享：6+份行研精選、3個(gè)行業(yè)主題2.每日分享：6+份行研精選、3個(gè)行業(yè)主題4.嚴(yán)禁廣告：僅限行業(yè)報(bào)告交流，禁止一切無關(guān)信息報(bào)告僅限社群個(gè)人學(xué)習(xí)，如需它用Thecontentsofthisdocumentconstitutetechnicaladvfortechnicalassistance.UnlesstheCDrecipientRepublicofPalau,technicalassistanceprovidersanddDisseminationofCapacityDevelopmestaff,othertechnicalassistanceprovidersanddonorFY24-26programwhichisContentsAbbreviationsandAcMainRecommendationsA.RoleoftheEmploymentE.AdditionalStructuralRefoFigure4.GovernmentWorkfFigure7.DistributionIMFAide-mémoire|3Table2.CompensationSpendingIMFAide-mémoire|4AbbreviationsandAcronymsEmploymentandCompIMFAide-mémoire|5PrefaceAttherequestoftheMinisttheperiodNovember9-2reviewthelevelsandcompoptionstoensureadequateandsustainablecompensatioThemissionhadfruitfuCulture,Tourism,aThemissionalsoheldproductivemeetingswithAustraAmbassadorExtraordinaNationsCountryCoordinatThemissionwishestoexpressitsappreciationfobyofficialsandsta(MinistryofFinance)fortheiroutstandinglogisticalsupport.fromADBstaffAlfonsaKoshibassistanceprovidedIMFAide-mémoire|6ExecutiveSummarySignificantnetemigrsecureadequatequalifiedstaffforpublicserviceprovision.significantlyhigherthanthatofcomparators,adGovernmentcompensationhasexacerbateddifficultiesinrecruitingandretainingscompressedpayscalesinthnotablestaffingdifficulties,whilepaylevelsfowaytosupportstaffingobjectives.Undertheassumptionsofcompensationspending-to-GDeconomicreboundfromthepandemic.Thesesavingswouldopportunitytoincregovernmentworkforcewerereducedthroughattritionwhichwouldalsocreatefiscaofadditionalskillebettertargetedtosupportstaffingobjectives,anincreasesshouldbetargetchallenges.ThetwobestoptionsavawithhigherincreasesInnovativeapproachescouldalsoauthoritiescouldconsidermergingsomefunctionsofthegovernment,especiallywherethereisfunctionalduplicationoroverlnationalgovernmenttoexploitthelimitIMFAide-mémoire|7Palau.Facilitatingtherecruitmenfromwhichthegovernmentcanrecruit.1Somethroughregulatorychanges,whileotherswouldrequirbecreatedtofacilitatepcomplyingwithtraditionalcustomaryobligatioemigration,includingforgovernmentemployeebehalfofthegovernmentforemploymentandcompensationtosecureadeservicesinanefficiyear-to-yearresourceavailability,therebyensuringfiscalflexibility,smallereconomieswhicharebynaturehighlyvulnFigure.CompensationSpending(PeSource:IMFstaffestimates.Notes:Theminimumwagescenarioassumeswagesforallnationalgovernmentworkersareincreasedby$0.50perhourinFY2026,FY2027,andFY2028,mirroringtheimpactonpayresultingfromtheincreasesenactedinFY2023andFY2024.1CitizensoftheMarshallIslandsandtheFederatedStatesofMicronesiadonotneedworkpermitsunderexistingrules.2Thesenotablyinvolveanexpectationofsubstantialmonetarycontributionsbythoseattendingfunerals.IMFAide-mémoire|8MainrecommendationsDevelopamedium-terTakestockofessentialskillsinshortsupplyinConductpilotfunctionalreviewsofpriorityminoverlaps,prioritizeessentialgovernmentservices,andright-andretentionofskilledConductfunctionalreviewsHarnesseconomiesofscaleandimprovetheefficienDocumentoccupationsandfunctionsofstategovernConsidermergingsomestatefpolicing,roadmaintenance,trashcollection,orvehicleregisSystematicallyandprominentlyadvertisevacanciHarmonizeemploymentandcompensationposupervisorystaff;reinforcemanagerRecruitforeignworkersintogovernmentservicethroughfellprogramsforyoungprofesfellowship,TeachforAmerica,aEncourageyoungerPalauanstoentergovernExpandopportunitiesforhighereducationwitsupportthegovernment’sGraduallyraisetheretirementaNote:“Shortterm”isunderstoodtomeanwithin1-2yearsand“mediumterm”isunderstoodtomeanwithin3-5years.IMFAide-mémoire|9I.Introductionrecruitmentandtheretentionofessentialpersotraditionalculturalpractices,andlimitedaccesstohealthccountry.Forinstance,thePalauCtravelrestrictionswerelifbenefitfromremittancesshrinkingthepoolofworkersfromwhichthe2.Theauthoritiesarecommittedtoadvancingremploymentandcompensationpolicies.TheEmfoundationforthedevelopmentofacomprehensivemedium-termstrategy.completethefirsttwostages(outofthree)ofth3.Thisreportreviewsgovsupportadequatestaffingforpublicreviewsrecenttrendsanddevelopmentsanalyzessalientissuesintheemploymentandcompensatiorecruitmentandretention.SectionIVmakesrecommendationsforstruc3Palau,theMarshallIslands,andtheFederatedStatesofMicronesia,whichareallpartoftheCompactofFreeAssociation,areknownastheFreelyAssociatedStates(FAS).IMFAide-mémoire|10II.Backgroundinabilitytoexploitecdisproportionatesizeofthegovernmentsectorbyinternationaworking-agepopulation(WAP),withaaddingstategovernments(Box1discussesstategSource:PalauanauthoritiesandIMFFADGovernmentCompensationandEmploymentDataset.Note:PalaudataareforFY2022.4ThefiscalyearrunsfromOctober1toSeptember30.IMFAide-mémoire|11Source:Palauanauthorities,IMFStaffestimates,IMFFADGovernmentCompensationandEmploymentDataset.Note:PalaudataareforFY2022.5.SinceFY20ableinnominalterfeconomy.Thesharpincreasegovernmentcompensationspendingflucttofall(asdidthecompensationspending-to5Thismeasurewasthefourthofaseriesoffixeddollarpayincreases:inFY2014,FY2015andFY2016,thehourlygovernmentwageswereraisedby25centseachyear.Afterthe75centsincreaseinFY2023,another75centsincreasewasapprovedforFY2024,whichputtheminimumwageforthegovernmentsectorat$5perhour(comparedto$3.5fortheprivatesector).IMFAide-mémoire|12a.NationalGovernmentb.NominalGDP,CompensaSource:Palauanauthorities,IMFstaffestimates.working-agepopulation(25percentwhenincludiheadcountofstategovernmentworkershasfollowedagraduallydeclining,albeitwithlesstrendsexplainthestabilityofnationalgovernmentemploymentovertimeworkers,securityfor1/10andtheremainderof7.Overall,therecenttrajectoryofgotheCOVID-19pandemic,authoritie(CRA)bytheUScongressshouldacompensationmeasurestohelpaproposedCRAwouldamounttoUS$899millionoIMFAide-mémoire|13Figure4.GovernmentWorkSource:Palauanauthorities.andonlyslightlybelowthatthatofallcomparatthesameincreaseforFY2024.territories,andotherfreelyassociatedstatCalifornia,andHawaii(Figure6.a).Aopportunitiesafterthepandemic,aswellasthpayingjobs(seebelow).6ComparedtoatotalpopulationinPalauof17,972in2020.IMFAide-mémoire|14Source:PalauanauthoritiesandIMFstaffestimates,WorldBankInternationalComparisonProgram,IMFWorldEconomicOutlook.Note:PricelevelindicesarefromWorldBankICP2017data.Figure6.2020ElectioSource:PalauanauthoritiesandUNWorldPopulationProspects.IMFAide-mémoire|15Statesaccountforoverathirdividedinto16states,correspondheadsofstates(e.g.,govparticularlythosemoreremote,thestategpermits,vehicletaxes,andtourism),blowhichtypesofstaffworkindifferentlevelsofgovernment,whicfunctionalreviewsandaddressingissuesofinSource:PalauanauthoritiesandIMFestimates.IMFAide-mémoire|16governmentemployees.Non-nationalsarerecruitedunderfixrequiresforeignerstobeofferedotwo.Thissituationresultsinadifferenemployeesaremostfrequentb.AverageAnnualCompensatiSource:IMFstaffcalculationsbasedonFY2023payrolldata.11.Palau’sgovernmaverage,youngerandhavebeenemployedforashorteraverageofactivegovernmentemployees.Thosewhocametotheolder;theyhavebeenworkinIMFAide-mémoire|17Source:IMFstaffcalculationsbasedonpayrolldata.moredeparturesthanrecruitments–whiletherrelativelybalancedflows(Fithenumberofdoctorshigh,althoughthisshouldthatthenetlossesintheeducationsecuritysector,thenetlossesarelessvisible.Theyareconcentratedamongsergeantsandfirefighters.7HowtoAssessSpendingNeedsoftheSustainableDevelopmentGoals:TheThirdEditionoftheIMFSDGCostingTool.8Itmaybeinevitabletohaveschoolsonthesmallerislandsservingadisproportionatelysmallnumberofstudents.9Ahealthcarecoordinatorworksinsidemedicalfacilitiestohelpmanagepatientcare.Thisfieldaimstoprovidepatientswithbettercareandtohelpmedicalfacilitiesoperatemoreefficiently.10Dentalhygienistsexaminepatientsforsignsoforaldiseasesandprovidepreventivecare,includingoralhygiene.11Alicensedpracticalnurse(LPN)isanursethatperformsbasicmedicaltasks,includingcheckingvitalsignsandfeedingpatients.12Awardsupervisorpreparesindividuals,underthesupervisionofnursingormedicalserviceadministrators,tosuperviseandcoordinatetheoperationsofoneormorepatientcareunitsinhospitalsorotherhealthcarefacilities.IMFAide-mémoire|18(PercentoftheAverageNumbeSource:IMFstaffcalculationsbasedonFY2022payrolldata.Note:Thefigureshowsthedeparture(respectively,entry)rateinnationalgovernmentemployment.Thedeparture(respectively,entry)rateinFY2022ismeasuredastheratiobetweenthenumberofpeopleemployedinasectorandwhoweremarkedasinactive(respectively,whowerehired)inthepayrolldatabetweenOct1st,2021,andSeptember30th,2022andtheaveragenumberofemployeesinthesectorduringtheperiod.Byconventionandconstructionofthedata,personswhoworkedintwodifferentsectorsthroughouttheyeararelinkedtothelatestsector.Abouttwo-thirds(105)werefilledattheendofthef500applications,ofwhichmorethan300wereeligible.Vacancapplicantswereidentifiedincludeteachers(5vacanciepositionsvacantoutof7),financialoperoperations(serviceofficer,disastermanagementhygienist).Ontheotherside,positionsforcooks,administfilled.Thelackofeligiblecatermsofcertificationcriteriaintrodqualificationrequirements,suchaseducationalrequirementsrelevantworkexperience,forinstance,canimped13VacanciescanbefoundatEmploymentopportunities(palaugov.pw).IMFAide-mémoire|19NumberofemployeesDeparturesEntriesNetentriesNetentryrate(pct)HealthHealthRegisterednurse4Coordinator30Securityguard830720Licensednurse20Foodpreparator420Wardsupervisor20EducationEducationClassroomteacher405408Maintenancecustodial610Educ.specialist10Dataspecialist110Budgetanalyst20000Foodpreparator20000Cook3300SecurityAdminsupport30Police-sergeant2042Policeairport-lieutenant410Policeairport-sergeant310Aviationofficer410OthersMaintenance-ground80Construtioninspector741Ex.director431Constructiontrade20Aviationinspector120Postalserviceworker720Source:IMFstaffcalculationsbasedonpayrolldata,FY2022.compensationlevel,IMFAide-mémoire|20theoccupationsdiscusoccupationswithshortages(Nurses,Teachers,AccountSource:IMFstaffcalculationsbasedondatafromtheUSBureauofLaborStatisticsandthePalauanauthorities.Notes:WagesinPalaurefertoGovernmentemployees.WagesforCalifornia,Hawaii,andGuamrefertobothpublicandprivatesectors.16.Severalcompoundingfactorsonthelaborsupositions.InadditionforjobpositionsinPalau.Healthcsmallsizeofthecountandaffordablehousingandtheburdenoffinancialobligationslinkedtotraditialsoweighinthedecisionforworkerstoapplyfo17.Onthelabordcouldalsohamperattraction,haramongnon-Palauanemployees,whoconsistentlyandpromunsolicitedapplicationsandwordofmouth.15Therearecandidateswhocannotbehiredcanalsoactasbarrierspreventontheirworkexperienc14Traditionalinformalsocialschemes,suchasexpecteddonationsduringfunerals,representaheavyfinancialburdenforthosecontributing.Poolingmechanismsexistthathelpsmoothingthefinancialburdenforthosesupportingthem(seeRecommendations).15Atthetimeofwriting,thereareonlythreevacanciesvisibleonline(Employmentopportunities(palaugov.pw)).IMFAide-mémoire|21improvethefunctioningoforganizations.Thisincludesdelivery,specialsupportduringreorganSource:IMFstaff.Source:IMFstaffcalculationsbasedonFY2023payrolldata.IMFAide-mémoire|2218.Apayscal(everyyearduringthefirstfiveyears,theneveafter).Source:IMFstaffcalculationsbasedonFY2023payrolldata.compensation,whichincludesdifferencomparedtomanycoucomponentscanmakeappearsrelativelynarrow21.Thegovernment’spracticeocompressedthewagescale.TheNationalGovernmenpaysystem.Subsequentwageincreaseshavebeendewagewhilelimitingtheco16Typicallycalled“allowances”inothercountries.IMFAide-mémoire|23compressedthewage22.Aconsequencedistributionofwagesisevepointssystemacrossfourcriteria:educationalrequirement;complexityofworkasergeants,lieutenants).Thepaycompressionratio,the9thdecile(10requirerelativelyhighlevelsofcompensationtobecSource:IMFstaffcalculationsbasedonFY2023payrolldata.17SeeExecutiveOrder238EstablishingaNewPositionClassificationSystem.IMFAide-mémoire|24Source:IMFstaffcalculationsbasedonFY2023payrolldataandWorldBankBureaucracyindicators.Note:Paycompressionisdefinedastheratiobetweenthe9thand1stdecile.ReadingNote:InPalau,theratiobetweenthecompensationof10percentgovernmentemployeeswiththehighestcompensationsandthecompensationofthe10percentgovernmentemployeeswiththelowestcompensationisat2.6.Itcomparestoamedianof4inhighincomecountriesand4.7inuppermiddle-incomeeconomies.countries.OnlyinNewZealaIMFAide-mémoire|25otherselectedsmallandmicrostates.Somecountrieswit25.ThepositivecompensationpremiumftheworkersturnawayfromthePalauathatpublic-sectoremploprivatesectorinPalau.Thiseinothercountries.ThePalthePalauanprivatesector,whilneighboringcountrieswh18TheSurveydoesnotdistinguishbetweenemployeesofthedifferentlevelsofgovernmentandstate-ownedenterprises.19MethodologicaldetailscanbefoundinGupta,S.,Coady,D.,Fouad,M.,Hughes,R.,Garcia-Escribano,M.,Curristine,T.&Soto,M.(2016).ManagingGovernmentCompensationandEmployment-Institutions,Policies,andReformChallenges.PolicyPapers,47.IMFAide-mémoire|26Source:IMFstaffcalculationsbasedonFY2023payrolldataandWorldBankBureaucracyindicators.Notes:Thecompressionpayratiosbyoccupationcomparetheaveragecompensationofagivenoccupation(e.g.,teachers)toareferenceoccupation,officeclerk(proxiedbyadministrativeassistantsinPalau).ReadingNote:InPalau,Doctors’compensationis3timesashighasthecompensationofthereferenceoccupation(officeclerk).InSingapore,itwouldbefivetimesashigh.IMFAide-mémoire|27Inmostcountries,governmentcoindividual'stotalcomlevelsforspecificjobroles,grades,andstepsconsistency,transparency,equity,andvisibilityoverfutureearnings.TheyensuretsimilarqualificationsandjobresponsibilitiesreceivecovisibilityonearningsovertiTheyareatoolforthegovernmentpromotions.Thepaccompensationtoincreasewithageandjobtenure.detailedassessmentheterogeneityofvariousoccupationsanduniversality/equitytostreadifficultformanagerstoadaptajobtochangingcircumdifferentiatepayaccordingtojobcharacteristics,wNon-wagecomponents(forinstance,nightwcompensationaccordingtojobandemployeecharacteristics;howevthecompensationsystem,limittrancompensationtypicallycoversfivebroadcategories:job,taskcommuting.Theycanbeawmentionedbygoverncanalsobeawayofcompensatingfordangerousareas,orencouragingcertaThepurposeofthenon-wagecompemedium-termobjectivesofgovernmentemployment,inpartworkforceandincreaseperformancemightconsidertheycreatenoincentivestomotivatetheworkforce.Anothercountrywstrategicpurposes,andregularlyre-assesseSource:HowtoSetCompensationforGovernmentEmployees,C.ThévenotandS.Walker,IMF,forthcomingandThePublicSectorPaySysteminIsrael,OECD,2021./10.1787/3b6ad37f-en.IMFAide-mémoire|28IV.ReformoptionsA.RoleoftheEmploymen26.TheECC—formstrengtheningthemanagementofgovernmentgovernment.Itsmandateshouldinclofthegovernmentworkforcebuestablishingobjectivesnotonlyforaverapositionsforwhichrecrmaintainingefficientandcohesivepublictheorganizationofsuchcommissionsinselectestandards.TheMinistryofFinanceislineministries.TheComgovernmentonpublicservicemanagement,overpolicies,andrecruitingaguidelinesforpublicservicesalariesandisresponsiblbutpositionsareassignedtosapermanentsecretariesfromthelinemiapprovedbytheParliament,establisministries.AJobEvaluationCommittee—madeupofaccreditedevaluatIMFAide-mémoire|29employees.TheCommissioncomprisesfiveAvailableValuesCountryCompensationspending(%ofGDP)Compensationspending(%oftotalexpenditure)Governmentemployees(thousands)Governmentemployees(%ofworking-agepopulation)Palau15.836.714.929.9Tonga14.629.99.915.7Seychelles10.830.617.89.027.738.36.6Kiribati38.630.39.712.7Maldives10.924.967.718.2Source:IMFFADGovernmentCompensationandEmploymentDataset.27.Theestablishmentofmedium-termobjectiveswillprovideanessentmakingyear-to-yeardecThisapproachtomanagiitprovidesgreaterfiscalflexibilitybyenablingchwithoutsacrificingstrategicmedium-termhumanparticularlyimportantforsmallereconomiinaplannedandincrementalmanner,recruitmentandretention.Finally,ibemadegraduallybasedonattrition,28.TheECCshouldestablishclearmedium-termobthegovernmentworkforce.Indevaprogramofgovernment-widefunctionalreviewstoidentifyasectorandtoprioritizeeoutsidesectoralexpertswiththeactiveparticipatMinistryofHumanResources,offunctionalreviewsistoright-sizethegovernmentandreducingemploymentwhereappropriate—toimprovespendinfunctionalreviewsshoulddepartments,andagencies.TheECC—ratherauthoritytoamendtheirestablishmentIMFAide-mémoire|3029.ThescopeoftheECC’sfunctionstatefunctionsintothenacompromisingdelivery.Potentialandvehicleregistratexample,servesnoapparcertainfunctionsunderthenationalgovernmentheirdeliverybyevensmallervaluablefiscalspaceforlargerincreasesingovernmen