SAMOAN ADMINISTRATION

Evening Post, Volume CVII, Issue 41, 20 February 1929, Page 10

SAMOAN ADMINISTRATION

POSITION OF PUBLIC SERVICE

FINANCES UNSATISFACTORY

The main portion of the Keport of the officers sent to Samoa by the late Government to investigate various matters there has been issued for publication by the' Prime Minister, the Eight. Hon. Sir Joseph Ward. In handing.it over to the Press, Sir Joseph Ward pointed out that the statement did not contain the whole of the Report, as there were parts of it referring to individuals, that had been held. over. as 1 they were regarded as unsuitable at. present for publication.

.The officers in question—Mr. P. Verschaffclt (Public Service Commissioner), Mr. A. D. Park (Assistant Secretary of. the Treasury), and Mr. C..-A. Bcrendsen (Secretary to the Department of External Affairs) state:— ADMINISTRATOR'S GRAVE CONCERN. "According; to instructions, we left New Zealand by the Tofua,ou the 3rd November, 1928, arriving at Apia on the 16th idem,, and immediately commenced our inquiries. y The Administrator intimated to us his grave concern in respect of the matters referred to, and , stressed his ■ desire that our inquiries, should be' as complete, as possible. •,._'■.

"Speaking generally,. ; our considered opinion after investigation is that the Public Service of Western Samoa, including the Reparation Estates, requires immediate reorganisation, and that the finances are in an unsatisfactory position. In our opinion, there are a number of 'causes contributing to this state of affairs: —.(a) .The absence of any definite system of (recruitment has necessarily, led to a type of official of a'lower grade thau we are accustomed to in New Zealand; (b) the Service has for .a: long period been cut off from contact with , the New. Zealand or any other Service and,.in.common with any organisation similarly isolated,- has inevitably deteriorated; (c) the' direction of tho various departmental services has fallen to. a considerable- extent into the hands'of men without .adequate de-partmental-training and experience; (d) the enervating effect.of the tropics al3o cannot bo ignored. ' It is 'clear-thai* many officers have served in Samoa for too lengthy a.period. URGENT AND DRASTIC ACTION NECESSARY. [ "'Whatever the .causes may have beefy* vro.. arc entirely satisfied that the Samoan Service as it exists to-day is by no means creditable to New Zealand, and that urgent and' drastic action is necessary to improve tbd position. "The report recommends that the important offices of Secretary to <he Administration, Treasurer, Officer-in-Charge of tho New Zealand Reparation Estates, and Local. Internal Auditor, should be filled in the meantime by men whose records and capabilities are fully known-in New Zealand, even if this'involves a somewhat higher cost than would: otherwise be justified. .In tho case of the Separation Estates, it is, "of course, impossible to obtain the services of a • suitable officer in Now Zealand who posscssesalso a knowledge of tho production and sale of Island products, but we feel that in the first instance, the primary requirements are a man with a knowledge of organisation and management, and also a com potent accountant, in order to give tho Estates Service a thorough and detailed overhaul. ... STAFF ARRANGEMENTS. "Wo make tho following additional proposals:— "(1) That further replacements'and reductions which are riot of immediate urgency should take place at a later date, after these new officials have assumed duty. "(2). That where practicable, positions j in the Public Service in Now, Zealand I should bo found for officers whose 10----l placement is considered necessary 1111J whoso work and conduct are regarded as satisfactory. "(.'!) 'J'hilt responsible officers uf the Sumoa.n Service should bo rcci'iiitcd in future entirely from the Now Zealand Service. "(•1) That so far us possible officors for tho various departments ,of the Sanioan Sorvico should be seconded from tho : appropriate department in Now Zealand, e.g., Treasury to Treasury, Customs to Customs. TWO YEARS' SERVICE LIMIT. "(C) That, with curtain limited exceptions, no official seconded' from New Zealand to Samoa should remain in the territory' for a period exceeding, say, two years, thus providing for a regular system of interchange. "(6) That in respect of tho salaries of the New Zealand officials (ouc'o tha Administration has ■ been, reorganisoi), the salaries should be those payable to the officers''as members of the Now Zealand Service. Any extra payment to compensate for tho extra cost of living in the Islands should bo by way of a special tropical allowance (varying in tho case of ' married and singlo officers), and where necessary a special allowance might'be payable iv the cajc of officers cngagedon what arc regarded as moi'o important duties than those attaching to their positions ,in New Zealand. "

"(7.) That whilo it will be nocessary that a number of positions should continue to bo filled by, persons resident in tho Islands, the salaries attaching to these positions should be brought into lino with the usual payments for similar services in the Islands. .

"(8.) That the scale of'salaries'prescribed'for'the' Samoan Sorvico should be reduced more in accordance with the value of services'rendered^

SALARIES AND SUPERANNUATION.

" (9.) That'the matter of superannuation bo reviewed. •> The preseufc posi-tion-in relation to the superannuation of officers is considered too liberal. Until 1924, special payments were made to officials by way of tropical allowance to recompense them for th,c extra cost and inconvenience of living iv the Tropics. Thcso payments have, quite wrongly, we believe, been incorporated in salary. The effect of tho alteration is to N inerease the superannuation allowances drawn by officials on retiring, and we suggest a return to the earlier practice. In addition, one and a 'half year's service is counted for each twelve months'l continuous service iii the Islands: this applies not only to Samoa but also to the Cook Islands. It is recommended .for very careful 1, consideration 1 that this provision should be repealed, and service counted in tho same way as isdono in the New Zealand Service. . ,

'' CONCEALED .REMUNERATION."

"(10.) That the ' rather numerous cases of concealed or undisclosed remuneration to officers of the Sanioan Service should be abolished, e.g.; transport allowances, houses at inadequate rentals, etc. ■ ' '. . . ■' ■'. "(11.) That furlough privileges be reviewed. Tho present privileges in relation to the granting of furlough are too generous. If our recommendation, is given, effect to that the principal of-ficials-should be drawn from tho New Zealand Service "and 'a regularl inter-' change made; there seems to bo no reason why. the-furlough provision' should

not be restricted to non-Samoan officers who; with the approval of the Minister, .remain at .least six years. Officers ap-. pointed from the territory should have no right to furlough.: , . ADVANCES TO OFFICERS. ■■"(13.) That the system of advances to officers be reviewed. Payments by way. of advances in the; nature of salary, allowances, fares, and otherwise which have been /granted iv the past to numerous officers should cease; and it should be definitely understood that no payment beyond •■ salary due will be granted. . ■■'. ■ -.-. "(13.) That an ..effort bo made to provide the service with-young and energetic New Zealanders, of a personality sufficiently strong, to increase tlio prestige of New Zealand. ...... . .. "(14.) That in all cases New Zealand should be advised of any matters which have necessitated inquiries being held into the conduct; of . any. official. The paper's in.all such cases should be properly recorded. The staff personal records generally, were very incomplete. They should be carefully reviewed, and proper records established, for all matters affecting each individual employee.

" (15.) .That officials 'be prohibited from undertaking any;. outside' duty. It is-understood that at least one officer of the Administration acts as a correspondent for the Press: this should be prohibited forthwith. . . .■ " (16.) That the present arrangement under wfiich married women; are employed should: be 'discouraged,; and in certain cases cease"forthwith.'.' TRANSFER RECOMMENDED. With reference to-the'Central Office, the report states:— ■ ..•.:.,■•• " The ■ activities of' this ; office, embracing as it does the" administrative control of all the funtionsof Government in the Islands, 1 are many and varied. The chief executive officer of the Administration,, salary £900 por annum, who also acts as Deputy Administrator, for which a-special payment of £100 per annum: is niade, has held offico for-.th'b past';sevenand a half years. . . . The position of Secre-

tary to the Administration is onerous and responsible; Jthe salary attaching to the position is substantial.' '. . . It may be' necessary to ■ pay ; a similar salary to attract a sufficiently competent official, who would be charged with any reorganisation which may be decided upon, but once.;.the: financial.and'administrative affairs are placed on a satisfactory footing, the services, of a much lower-salaried officer should suffice.

"Our ' recommendation is that the present officer should be ■ transferred, and • that an officer ot outstanding executive ability and; capacity from tho New Zealand Service.should bei appointed to direct such reorganisation as is required. A similar recommendation is made under the . heading: of Treasury (dealt with in another column) in respect of the Treasurer.,. . . In respect of both the transferred officials, we - recommend that an 'endeavour be made to place them in suitable positions in the Now Zealand Service.

The officers' report.with regard to the Labour and Chinese Department is summarised elsewhere. .■'■■ vt:' ■ LANDS AND SURVEYS AND i /PUBLIC WORKS. "The activities of both these Departments show considerable curtailment (states the report), and further readjustments aro in: hand. ... Tho retention of cither ■' as separate departments is a ■ matter 'for consideration, and meantime it appears to us that it would'bo* a feasible; and economic proposition, to amalgamate both departments with the Secretariat with a view to tho reduction of overhead expenses.

"Tho Public Works loan programme is practically completed, so that maintenance and replacement works aro all that are iuvolvcd. For-this a highly paid'engineer is not'warranted; a competent overseer should suffice Should it be Jioccssary, special bridgo and other designs for replacement works can bo done in Kcw Zealand.

''The trading-activities undertaken (such as tho manufacturing of furniture, etc., on private orders) by the Public Works workshops;should bo discontinued, oven'if tho Administration is not successful in leasing same. Tho organisation ; should be reduced to sufficient only to cope with legitimate Government work. . .' The position, of chief clerk, Public Works, £500, is overpaid, and a reduction is warranted. "Other features which came under our notice and call for reduction arc: (a) Government stores (including Buch commodities as benzine) are sold to officials at too low a price, and on unsatisfactory terms as to. paymont. Tho privilege of , officers being allowed to purchase stores should be abolished; (b) if tbo proposal to absorb the office in the Secretariat,is approved, tho stores should bo;placed under the Engineering and Transport Department; (c) tho present , basis of expenditure on maintenance works.should cease, and bo reinodoljed in accordance with our recommendation under'the heading of Finance arid Treasury; (d). tho financial side .of the offico is on a weak and unsatisfactory basis; no proper internal check ;or audit is in operation; (c.) tho payment of mileage fees to tho chief clerk for the use, of his private car should not'bo permitted; Government cars aro available and should be used." .' , ..: .' ,;. CUSTOMS, TAXES, AND MARINE. VThc /organisation ( and control of this department proved to.be on a moro reasonable basis than -in tbo majority of other departments, due largely, we boliovcv to tho fact that tho system was instituted by trained officers of tho New Zealand Customs Department. Tho methods prescribed in New Zealand fire in operation. The Collector is fully seized of his responsibilities in relation to the important work-un-der.his charge, and appears to bo a competent officer."'. ■• : Certain matters of detail are, howover, noted as requiring attention. THE HEALTH DEPARTMENT. "Very substantial reductions aro already being mado.in respect of the administrative : cost of this department (conkinues the report). Pull credit for tho iwork that has been done must be givojn to the present Administrator, and also' to the 'Medical Superintendent, who has co-operated fully in the matter 'of reductions. If difficultyi continues in tho payment ofnativo taxes, the'question of further reduction in the services to the natives .should be reviewed.

f'Ono of the weakest features in connection with the administration of tho Health' Department appears to us to be. the purchase of stores.' It seems to usthat a better arrangement would ■be for all storcs'.purcbases to be made ! through/ the' departmcntaL-<organisations in New Zealand. 1 ; • . "The fees generally tor attendance, operations, etc., could reasonably bo increased so as to give:an adequate return for tho services rendered. '■ ■ ■. "It should be- noted that the schedule adopted for; the training' in Fiji of native medical practitioners is too generous.; It' will; shortly provide for more native,medical practitioners than the Territory:, can 1, absorb, ibut :tne' Ad-

ministration appears to bo committed to tho expenditure for an indefinite period.

POST OFFICE MANAGEMENT.

"The Post Office, which is organised on lines similar to those obtaining-in New Zealand, appears to us to be reasonably well managed (state the investigating officers), the principal officers of the staff, composed of officials frora the New Zealand Service; being fully filive to the necessity for maintaining an efficient service. ... It came under notice that Savings Bank deposits were handed over to the local Treasury, apparently without proper authority, and in any case without payment of, proper interest for the use of the money. As interest is payable on Savings Bank money, on the same basis as in New Zealand, it is quite improper that the Post Office Savings Bank funds should be utilised by the Treasury to meet revenuo charges. The budgeted revenue of the Treasury provides under the Post Office section for interest on Post Office Savings Bank investments only, and under expenditure for interest to depositors.

Beferring to tho wireless service, the report states:—- . ' ■

"The location of thD present highpower station at a considerable distauce from Apia, and which is reached by indifferent means, of access, necessarily affects the present high cost of maintenance. It is recommended that the proposal to abandon the present sito and to erect a low-power station adjacent to tho town be given immediate attention. The work should- then form part of the postal organisation, lower maintenance cost would accrue, and the reduction in staff would be material. . ' ....'■■ .■.•"The system of accounting requires immediate consideration. We were advised that there has been no audit or other check in the financial transactions of tho station,, the responsibility for which was'avoided by the officials one would have expected to be primarily concerned in the matter. » This audit should be undertaken at tho earliest opportunity. Pending amalgamation of the station with tho Post Office, the collections for transmissions should do made either through the Post Office or the Treasury; and not by the officer in charge of the station." ..' CIVIL AND MILITARY POLICE. "•As is almost inevitable in similar circumstances, there is (the officers observe) a , certain, amount of friction and lack of co-ordination between the military police and the civil police, but iv view of tho proposed merging of tho two services probably no action is called for. ... We recommend that the native police force should be reduced! immediately from, the present staff of 26 to 10." "Tlie expenditure in connection with the military police is charged to New Zealand in accordance with section 7 of the Finance Act, 1928. We feel that in many cases expenditure has been incurred which should have had prior approval from New Zealand, and that in general too heavy a burden Has been placed upon this item,- e.g., all medical attention for members of the force has been charged as for individual visits, with tho result that the total has been practically sufficient to pay the cost of a medical officer for the force alone. The amount charged for transport also is, in our opinion, out of all reason, and should be reconsidered at once. "We recommend that as soon as may be, 6ueh military police as may be retained should be allotted definite func; tions in the administration, in addition to police duties." JUSTICE AND EDUCATION. "The administrative work of this Department appears, with minor exceptions, to be well, done, again due, we think, to the employment' of a trained officer from New Zealand. We consider, however, that the Court - fees should be increased to such an extent as.to cover the actual cost of the services performed, which is far from tho case at present. ..."

"A considerable reduction in the expenditure under this head has already been made, and we regard this as satisfactory as far as it goes. We suggest, for consideration as a policy natter, however, tho desirability, if the Mau movement and non-payment of taxes continue, of temporarily closing. all schools other than the 'whito' school at Hi Ifi. In any case, wo suggest that children of nou-taxpaying parents should not bo admitted to tho schools without payment of an adequate fee. NO "WHITE COLLAR" JOBS. "Wo suggest also that, as a mutter of policy, careful consideration should bo given to tho aim of tho education system in Western Samoa, especially where education is continued'beyond, say, Standard 4. There is clearly no room in tho torritory ■ £or "whito collar" employment. Wo consider that tho fees for tho Ifi In School.should bo increased to' pay as nearly as possible tho cost of tho school." Other matters wo noted, among thorn being tho question of audit. "The audit of tho books of tho Education Dopartment is ineffective (states the report), and this, together with tho method of accounting for stock, is recommonded for the immediate attention of the now auditor."

The reports on tho Native Department and the Separations Estates' are dealt with on another, page. Concluding their report, tho Investigating officers say:—"We. gratefully acknowledge, the assistance readily granted to us ;by His Excellency, by tho members of tho staff, and indeed by all from whom we requested information. ''