GOVT 1007

Issues In Caribbean
Public
Administration
Case Study 3 & 4 Review

Garvin Kadoo 810002182, Kyla Delecia 816040861, Anthony

Public Administration in the Caribbean exhibits its own unique set of challenges. The culture, and

work ethics demonstrated within the internal environment of the labour force in the Caribbean,

more specifically, in Trinidad and Tobago vehemently suggests that despite obtaining

independence from our colonial masters, the old colonial system issues are still embedded in the

present public sector. Dr. Rita Pemberton’s research confirms that “The Imperial Administration

with its fixation on colonies as providers of profits, was unwavering in its position that it would

not take on the burdens and mandated the island’s administration to implement cost-cutting

measures.” Simply put, the needs or future aspirations of the masses; peasant class were

disregarded as compared to that of the planter class. Following Independence, there was much

need for a different style of governance as well as public administration tailored to Trinidad and

Tobago. The fact that the public service still operates under legislation dating back to the 1960s

underscores a significant inertia in adapting to the dynamic needs of a modern, independent nation.

Bonded to the ancient laws, stringent policies, hierarchical principles, ineffective communication,

lack of incentives for employees amongst other challenges, the existing public administration

system continues to support Mr. Mariano Browne’s perspective in the Guardian on the Trinidad

and Tobago Civil Service. Titled: ‘A Wink and a Nod?’ and ‘Adaptation and Evolution?’ Mr.

Mariano Browne’s articles respectively written in the Guardian on February 12th and 19th 2023 are

worthy of review if one is committed to patriotic and proactive progress. This year, Trinidad and

Tobago will celebrate sixty-three years of independence from the United Kingdom. While some

changes have undoubtedly occurred since independence in 1962, it has often been deemed

insufficient to address the multifaceted complexities of the modern world. Globalization, rapid

technological advancements, and shifting societal expectations require a public service that is

proactive; forward-thinking, and capable of effective, citizen-centric service. Particular attention

in the public service should be given to the creation, implementation and execution of twenty-first

(21st) Century laws and policies. As a result, Trinidad and Tobago’s public administration needs

to increase and/or improve the inclusion of digital technology and functional technologies. Despite

the typically laissez-faire culture and approach which exists in Trinidad and Tobago, if there exists

any political and patriotic will in the relevant authorities or concerned administrations, then

changes can be implemented to improve politics-administration dichotomy, accountability,

communication, internal controls; civil service act, adaptability, evaluation and professional

development for an improved, more efficient public administration.

Public Administration can be defined as the development, implementation and study of

government policy. The father of public administration, Woodrow Wilson stated “public

administration is a detailed and systematic execution of public law.” This comes from the assertion

that every particular application of law is an act of administration. According to L.D. White another

scholar who specialized in public administration stated “public administration consists of all those

operations having for their purpose the fulfillment or enforcement of public policy.” Public

administration is the focus on government and serving the public interests, whereas private

administration is geared towards making a profit and fulfilling shareholders’ interest. Public

administration is primarily funded by taxpayers whereas private administration is funded by

shareholders and investors. Public administration adheres to regulations and operates under the

purview of governmental organisations. The constitution plays a critical role in public

administration. However, private administration has more autonomy and engages in self-

regulation. This makes private administration more flexible in dealing with problems. Public

administration is accountable to the public. Additionally, it is subjected to political influences. On

the other hand, private administration is accountable to shareholders and investors. The
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organizational structure in public administration is hierarchal and there is a defined chain of

command. This hierarchal structure is rather bureaucratic and positions are based on seniority and

not necessarily on merit. Private administration may have a more flexible organisational structure.

The gradual development of public administration started from pre-independence; where the

administrators were called colonizers. Administration was governed by a Governor, who was

appointed by the ‘motherland’ (England). Administration was employed by the Governor with one

goal in mind: to benefit the motherland. A bureaucratic system of Government evolved and

continued until today. Trinidad and Tobago have shown development in administration and shifted

from benefitting Britain to the development of a sovereign government for the Republic of

Trinidad and Tobago. Although there are many signs of improvement in public administration,

there is still the need for re-engineering and the restructuring of the public sector to enhance the

services provided as well as to improve the efficiency and effectiveness within the workplace.

Many countries have emphasized on reforming the public sector to adapting to new environmental

challenges. Reform is constantly needed due to external forces and environmental changes. It is

needed when the existing systems and processes can no longer perform effectively and with the

capacity and capability required. When these self-adjusting mechanisms in public administration

systems can no longer adjust to meet changes, reform becomes necessary. The public sector in

Trinidad and Tobago should not wait until there’s a complete breakdown for reform to take effect.

The outdated internal control systems and processes in Ministries continue to make it difficult for

public servants to adapt to modern environmental challenges. Public sector reform is no quick fix.

The field of public administration offers a range of theoretical perspectives to advise reform efforts

including: institutional, transformative, principal-agent, innovation, change management, cultural

theory, and interpretive lenses. There should be short-, medium- and long-term plans for
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administrative reform in the public sector. It should be goal specific and strategically planned with

the future needs being considered at each level of the public sector. Some advocate for a pragmatic,

context-specific approach prioritizing citizen engagement, while the New Public Management

(NPM) theory; promoting private sector emulation for efficiency, has also influenced discussions.

The introduction of the New Public Management (NPM) is crucial to public administration since

this approach aids in gradually identifying shortfalls of the public sector performance. The

Ministry of Public Administration and the Public Services Association (P.S.A) (Guardian, May

26th 2013) agree that there is a need for collaboration to modernize the public service. Additionally,

one can expect adverse challenges if implementing top-down reforms without addressing

stakeholder interests and potential resistance to reform initiatives.

Mr. Mariano Browne’s ‘A Wink and A Nod?’ suggests that one should review the efficiency of

the structure of organisations within the public service as well as politics-administration

dichotomy. Furthermore, this article explicitly expresses that the “hierarchical authority structure”

directly correlates to the existing inflexible, and slower disciplinary consequences to infractions.

The current framework of the public sector must also consider the legal confinements and

ramifications of any chosen disciplinary action. It is often said that a chain is as strong as its

weakest link. In the case of the public sector, each level must be outfitted with qualified, and

trained professionals to ensure that the default power and authority given as a result of a respective

job title or position would be efficiently managed and executed appropriately. Therefore, one must

comprehend that the effective functioning of a democratic state relies on a crucial division of

powers among its institutions, safeguarding liberties against tyranny or corruption. This separation,

while fundamental, creates complex tensions between the political and administrative spheres. In

Trinidad and Tobago, constitutional power is circumscribed, even for the President. Ministers,
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despite their authority, face significant limits on controlling civil servants, lacking the power to

unilaterally hire or fire. Their influence hinges on the relationship with the Permanent Secretary.

This structural constraint, intended to ensure impartiality, can challenge political leaders in

implementing their agendas and ensuring administrative accountability. Mistrust and differing

priorities between ministers and permanent secretaries can further complicate this dynamic,

particularly after changes in government. Political cycles also significantly impact public service

stability and long-term planning. New regimes often abandon predecessor projects, hindering

sustained development and fostering a risk-averse culture where officials hesitate to commit to

long-term initiatives that could be discontinued with political shifts. For instance, a Trinidad

Express article from March 12, 2025, detailed the abrupt halt of a major agricultural diversification

project due to a shift in policy priorities. Similarly, a Newsday report on February 28, 2025,

highlighted concerns over frequent ministry restructuring post-elections, hindering consistent

strategic direction. These examples illustrate how the interplay between politics and administration

can disrupt long-term effectiveness within Trinidad and Tobago's public service. Browne's analysis

implicitly touches upon this dichotomy. He emphasizes the separation of powers as the

foundational principle of the Constitution, leading to the independence of bodies like the Service

Commissions from direct political influence (e.g., the President or Prime Minister cannot direct

their work). This separation, while intended to safeguard against tyranny, creates a distinct

administrative sphere that operates with a degree of autonomy from the political executive.

Browne also points out that ministers lack the direct power to hire or fire civil servants, making

their control dependent on the Permanent Secretary, further illustrating the separate, yet

interconnected, roles of the political and administrative leadership.

Most organizations, including the Trinidad and Tobago Civil Service, operate as hierarchies, where

power and control are concentrated at the apex, supported by a framework of hierarchical authority.

This structure delineates the formal channels for decision-making, with authority – the legitimate

power to make these decisions – vested in specific offices or positions. Power, conversely,

embodies the capacity to influence others and shape their actions. While both the private sector

and the Civil Service adhere to hierarchical principles, the exercise of power and authority within

the public sector in Trinidad and Tobago appears significantly more intricate and subject to

substantial constraints compared to private sector organizations. This inherent complexity can pose

considerable challenges in ensuring accountability and facilitating efficient decision-making

processes within the public service.

A fundamental challenge within the public sector is the often, arduous process of exercising power

and authority directly, largely due to stringent legal restrictions. This makes taking disciplinary

action within the Civil Service considerably more cumbersome and protracted than in private

sector organizations, where power can often be exercised more directly and swiftly. Furthermore,

systemic issues such as weak internal controls continue to plague the public service. The Solicitor

General's department, for instance, has been cited as an area vulnerable due to inadequate internal

oversight. These limitations in control mechanisms, particularly in effectively enforcing discipline

and maintaining robust internal oversight, can contribute to operational inefficiencies, a heightened

potential for mismanagement of public resources, and a lack of clear accountability for errors or

misconduct within the public service. For example, a Trinidad Guardian article on March 21, 2025,

highlighted the Teaching Service Commission's struggles with lengthy delays in disciplinary cases,

underscoring the cumbersome nature of taking action even in serious matters.

In Trinidad and Tobago, the constitutionally mandated Service Commissions play a pivotal role in

the administration of controls within the public service. These commissions are responsible for the

crucial functions of appointment, promotion, transfer, and discipline of officers within specific

services. Designed as non-political bodies, their primary objective is to maintain neutral services

based purely on merit, free from the corrosive influences of patronage, discrimination, nepotism,

and injustice. The underlying intention behind establishing these commissions was to insulate the

public service from undue political interference and ensure a fair and equitable system for

personnel management. However, despite their critical function, the effectiveness of Service

Commissions as a control mechanism may be hampered by inherent limitations in their mandate.

As previously noted, they do not determine their own operational agenda or budget, nor do they

exercise direct control over the staffing of their own departments. While their function of insulating

the public service from direct political interference remains vital for maintaining impartiality, the

structure and operational procedures of these commissions necessitate ongoing review to ensure

they are efficient and effective in addressing critical issues such as disciplinary action and overall

performance management within the public service. A Newsday article from November 2, 2021,

discussed concerns about the Service Commissions being under-resourced, potentially impacting

their ability to effectively carry out their mandate of oversight and control. This highlights the

ongoing need to ensure these crucial bodies are equipped to fulfill their vital role in maintaining

integrity and accountability within the public service.

One of the key concerns in the case study entitled “Adaptation and Evolution” was the lethargic

adaptation of public service to the growing and rapid change with the external environment. The

essence of development administration is to bring about change through integrated, organized and
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properly directed government action. In recent times, many governments in most developing

countries have shifted their focus on development by ways of planned change and people’s

participation. The increase in the welfare function of many governments has brought into the

limelight the restrictions of traditional development theories of administration. The heart of

administration in the current condition lies with its capacity to bring about change in the structure

and behaviour of different administrative institutions to develop as acceptance of the change and

to create a system that can sustain change and improve the capacity of institution to change.

Governmental institutions that reject modern changes and adaptation will be left behind and the

core function of the institutions will come into question.

Another concern that is brought into question is the use of modern techniques and operational

systems in the day-to-day functioning of State Enterprise and Ministries. Nowadays, organisations

function in a rapid changing environment where technology is constantly changing. The

introduction of the New Public Management in the 1980’s is a sign of progress by the government

to keep up with this change. New Public Management (NPM) emphasizes on the use of private

sector practices and tools in the public sector to improve the goods and services they offer. The

replacement of personnel departments with Human Resources Management shows a shift from

traditional development theories to the more modern way of thinking and administrative

development. The introduction of the Ministry of Public Administration is a move in the right

direction. Although, there has been changes in the public sector over the years with new methods

of administration, the rapid changes in the external environment requires a proactive approach to

internal changes to close the gap. The need for a more futuristic approach to development is

needed.
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New Public Management implementation of modern tools, systems and processes can only be

effective and used efficiently if governmental organisations has the human resource capacity to

ensure it is run properly. Having the right people in the right place is of paramount importance.

The people responsible for the civil service functioning ensure that recruitment is done in manner

that is fair and the best is selected for positions and not by nepotism. Unfortunately, historically,

the public service has been affected by nepotism and almost all the time, the persons selected for

positions are not the best suited for the positions. Many times, when government changes,

government officials’ friends and family members are employed in key areas in Ministries and

State Enterprises. Administration needs to be free form political influences for it to be able to run

efficiently. According to Woodrow Wilson- the father of Public Administration “the field of

administration is a field of business. It is removed from the hurry and strife or politics”. Although

politics determine what administrative duties entail, it is noted that politics should not interfere in

the discharge of administration functions. Administration that is separate from politics will only

improve methods of appointments and the carrying out of executive functions. This can establish

the sanctity of public office and restore public trust in the public service.

Transparency and accountability continue to be a major concern in the public service. Modern

public sector workers are governed by a code of ethics in the work place. They are expected to

maintain the publics trust and confidence in government by demonstrating the highest standards

of professional competence, efficiency and effectiveness, upholding the constitution and the laws,

and seeking to advance the public good at all times. Public servants are expected to be transparent

in the use of government resources and be accountable for the decisions they make as well as to

be prepared to justify their actions. Civil servants and public officials are required to serve the

legitimate interests and needs of the government, other civil servants and all citizens, in a timely
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manner with care, respect and courtesy. These sentiments can be echoed with respect to the cyber-

attack on TSTT in October 2023. According to an article published by The Caribbean Council on

17th November 2023: ‘Trinidad’s state telecoms company hit by cyberattack’ show the need for

accountability and transparency by the relevant authority. This occurred on the 9th of October 2023

where TSTT was hit by a Ramsomware by a global hacker group called Ransomexx. The data

breach which includes personal information such as names, addresses, email address and national

identification number and contact numbers and other confidential information of TSTT customers.

This incident was not reported to the relevant authority by the telecommunication giant and only

when it was brought to the limelight by Falcon Feed, an India-base technology security company

where it was revealed on platform ’X’. Only then on October 27 th 2023, the information was

disclosed. The lack of transparency and accountability eventually lead to the firing of the then

CEO. Though the buck stops with the CEO, greater concerns lies with those who were aware of

the cyber-attack on TSTT and are still employed. Accountability and Transparency falls on all in

the public service and state enterprises regardless of what office they hold. They too must be held

accountable. Senior managers need to lead by examples and uplift others to Integrity and the Codes

of Conduct. Were they afraid or even forced to not bring this to the relevant authority? There is

the whistle blower Act protection in place for situations like these.

Recommendations for Enhanced Public Service Functioning in Trinidad and Tobago to address

the persistent administrative challenges within the Trinidad and Tobago public service and

cultivate a more efficient, effective, and ethical system, the following detailed and actionable

recommendations are proposed:

Development of Administration:
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Solution: Establish a dedicated Public Service Transformation Unit within the Ministry of Public

Administration. This unit, staffed with experienced public administration professionals and change

management specialists, would be tasked with leading the comprehensive review and

modernization of the legislative framework. They could benchmark against successful public

service reforms in comparable small island developing states (SIDS) and engage legal experts to

draft updated legislation that promotes agility and performance.

Real-life Example: The establishment of similar reform units in countries like Singapore and

Estonia, which have achieved significant advancements in public service efficiency, could serve

as a model.

Solution: Partner with regional and international institutions (e.g., the Caribbean Centre for

Development Administration - CARICAD, the Commonwealth Secretariat) to develop and deliver

targeted capacity-building programs. These programs could leverage blended learning approaches,

combining online modules with in-person workshops facilitated by experienced practitioners.

Real-life Example: CARICAD has previously conducted workshops in Trinidad and Tobago on

areas like leadership development and strategic planning, and expanding such collaborations with

a focus on 21st-century skills and digital literacy could be highly beneficial.

Controls in Administration:

Solution: Implement a digitized, integrated financial management information system (IFMIS)

across all government entities. This would enhance transparency, streamline audit processes, and

provide real-time data for effective risk management.

Real-life Example: Guyana's ongoing implementation of a comprehensive IFMIS, despite initial

challenges, aims to improve financial accountability and reduce opportunities for mismanagement.

Trinidad and Tobago could learn from their experiences.

Solution: Increase the budgetary allocation and staffing levels for the Service Commissions,

particularly the investigative and legal arms responsible for disciplinary matters. Furthermore,

establish clear performance indicators and reporting mechanisms for the Commissions themselves

to ensure their own accountability and efficiency in processing cases.

Real-life Example: Public calls in Trinidad and Tobago, often reported in the Newsday, for greater

transparency and quicker resolution of disciplinary matters within the protective services highlight

the need for such resource enhancement.

Politics-Administration Dichotomy:

Solution: Institutionalize regular joint strategic planning retreats involving ministers, Permanent

Secretaries, and senior technical staff. These forums would provide a platform for open dialogue,

shared understanding of policy objectives, and collaborative development of implementation

strategies.

Real-life Example: While informal consultations likely occur, formalizing these retreats with clear

agendas and follow-up mechanisms, similar to strategic planning sessions in successful public-

private partnerships, could foster better alignment.

Solution: Develop and enforce a clear "Protocol for Political-Administrative Interaction" outlining

appropriate channels of communication, limitations on political directives in administrative

matters (especially personnel), and mechanisms for resolving potential conflicts. This protocol
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should be publicly available and form part of the induction process for both ministers and senior

civil servants.

Real-life Example: Codes of conduct for ministers and civil servants exist, but a specific protocol

focusing on the boundaries of their interaction, drawing on best practices from countries with

strong public service integrity, could provide clearer guidance.

Reform Imperatives:

Solution: Establish a multi-stakeholder National Public Service Reform Task Force, comprising

representatives from the government, public service unions, business sector, civil society, and

academia. This task force would be responsible for developing the comprehensive and long-term

reform strategy through a participatory process.

Real-life Example: The National Tripartite Advisory Council (NTAC) in Trinidad and Tobago,

which brings together government, labor, and employer representatives, provides a potential model

for such a collaborative body.

Solution: Implement a phased approach to reform, starting with pilot projects in selected ministries

or departments to test new processes and technologies before wider rollout. This allows for

learning and adaptation based on real-world experiences and can help mitigate resistance to large-

scale change.
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Real-life Example: Introducing digital service delivery platforms in a few key government

agencies as a pilot before a nationwide implementation could allow for identification and

resolution of potential issues.

Ethics and Professionalism:

Solution: Introduce mandatory, interactive ethics training programs for all public servants,

utilizing case studies relevant to the Trinidad and Tobago context and emphasizing practical

application of ethical principles. Establish a confidential ethics hotline managed by an independent

body for reporting unethical behavior.

Real-life Example: The Integrity Commission already plays a role, but a more proactive and

comprehensive ethics training program across the public service, coupled with a truly independent

reporting mechanism, could strengthen ethical awareness and accountability.

Solution: Strengthen the performance management system to include clear behavioral

competencies related to professionalism and customer service. Incorporate citizen feedback

mechanisms (e.g., online surveys, suggestion boxes) into performance evaluations and link

performance to opportunities for advancement and recognition.

Real-life Example: Implementing citizen satisfaction surveys after service interactions, similar to

customer feedback mechanisms in the private sector, and using this data to inform performance

reviews could drive improvements in service quality.

Given the aforementioned exploration of Mr. Mariano Browne’s articles: ‘A Wink and A Nod?’

and ‘Adaptation and Evolution?’ along with the theoretical perspectives of public administration,

it is clear that Trinidad and Tobago’s public sector is without a doubt in need of twenty-first
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century reform. The critical examination of public administration in Trinidad and Tobago reveals

a system deeply shaped by its colonial origins, characterized by persistent challenges in adapting

to modern demands, navigating the complexities of the politics-administration interface, and

establishing robust controls and accountability mechanism. The informalities highlighted by Mr.

Mariano Browne coupled with constitutional constraints on ministerial power and the bureaucracy

inertia stemming from historical practices, underscore the significant need for comprehensive

reform. As the nation progresses beyond sixty years of independence, it’s imperative for a

proactive development-oriented public service capable of embracing innovation, upholding high

ethical standards, and effectively serving its citizenry, becomes increasingly critical. Addressing

the de facto nature of key administrative roles strengthening oversight bodies, fostering greater

collaboration between political and administrative leaders, and implementing meaningful and

sustainable reform initiatives are essential steps towards overcoming the embedded challenges.

Ultimately, the realization of a truly effective public administration system in Trinidad and Tobago

will require concerted effort to shed the vestiges of the past, embrace contemporary best practices,

and cultivate a culture of accountability, transparency, and the unwavering commitment to the

public good.
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References

Gosine, Dr. N. (2024, February 23). Public Servants Need Training. Newsday.

https://newsday.co.tt/2024/02/23/public-servants-need-training/

Chapter 8: Ethics and Accountability in public administration (N.D)

Haque, M. Shamsul (n.d) Public Administration and Public Policy – Vol. 1 – New Public

Management: Origins, Dimension and critical implications

Keraudren, Philippe and Miero, Hans van, Theories of public management reform and their

practical implications

Dahl, Robert. (1947) The science of Public Administration: Three Problems

(2025) What is Public Administration? History, Impact, and Theories. www.pointloma.edu

Goodnow, Frank J, 1900, “Politics and Administration: A study in Government

Waldo, Dwight 1968, Public Administration The Journal of Politics Volume 30 #2.

https://www.jstor.org/stable/2128449

(2015-2025), The role of organisational theory of change, www.sopact.com

Draton, Helen, 2022 February 20th , Re-engineering the Public service is the imperative,

Guardian

Global Centre for Public Service Excellence (GCPSE), From old public Administration to New

Public Service, Implications for the Public Sector Reform on Developing Countries. UNDP

Pemberton, Dr Rita, 2024 December 5th, The Knots of Union: Administrative Challenges.

Newsday.
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Wilson W, Unit 3, Wilson Administrative Dichotomy pdf (n.d).