Tokelau Public Service Commission of Inquiry

Executive Summary

The New Zealand modelled Tokelau Public Service was established in the 1970s. The TPS concentrated authority centrally in Apia and created a distinction in the villages between village and national staff. From early 1990s Tokelau’s elected leaders and Toeaina have been expressing the desire to "Bring the services back to where the elders are, and where the authority is to restore traditional power to the villages and to address the widespread dissatisfaction with service provision. The General Fono has supported devolution for many years, and in the June 2003 decided to set a target date of 30 June 2004 for each Taupulega to have full responsibility for running the public services on its atoll.

With this in mind, the Administrator of Tokelau established a Commission of Inquiry to undertake "a comprehensive review… to ensure that the Tokelau public services (at both the village and the national level) have the structures, working environment and capability to deliver an appropriate range and level of services to Tokelau."

In doing so the Administrator directed that the Review Team (the Review Team) take a participatory approach; work closely with the Council of Faipule, Taupulega, special interest groups and all employees; and that the final report reflect understandings reached during the Review. The Inquiry was conducted over a ten week period, with seven being spent in the villages

This report outlines the processes used by the Review Team and tries to faithfully reflect the understandings reached. It also outlines what need to be done to achieve the transfer of Public Service responsibilities; It is intended to be a "working document" with detailed recommendations and guidance that will assist with the way ahead. It is addressed to the Administrator but in a form that can readily be handed over to Tokelau’s leaders and workers for actioning.

The review team found that current services are inadequate and require improved delivery and coordination.

This report found strong support for the transfer of Public Service responsibilities, and recommends the transfer of school, hospital, power, local economic development, police, travel advisor functions to the Taupulega of each village. Economic development, shipping operation, supply procurement, medical referral, scholarship administration and international relations will al continue to be managed nationally, as will the support function of setting standards and monitoring. Other support functions of financial management, planning, policy advice, human resource management, administrative support, revenue collection, property and asset management, will be managed at national and local levels.

Considerable preparation is necessary for these transfers.

The Review Team examined the structures, working environment and capability to deliver services, and supports current village initiatives. Each village is developing a greatly strengthened Office of the Taupulega that forms the "umbrella" for all its services. Each Office is, or will be, headed by a person who is directly responsible to the Taupulega. That person will support and advise the Faipule and Pulenuku, and manage the villages’ staff and services.

At the national level the report recognises the need for more responsive and better coordinated services. It recommends a restructuring involving the appointment of a General Manager to head the National Office and increased economic development, and planning and monitoring capacity. It also recommends improved support to the Council of Faipule.

The report reflects the understanding reached that the TPS workers transferred and village workforces should be combined, and that the terms and conditions of employment of the TPS should largely be retained and adopted for all workers. The reallocation of TPS positions is also detailed.

The current appointment and appeal processes are examined and changes detailed for both the nation and villages. Responsibilities in these areas move to an appropriate village or national body with enhanced human resource management capacity. Accordingly the Review Team recommends the discontinuation of the TEC.

Funding the new structures and transfer is also discussed. The conclusion is reached that the changes can be achieved within the current budget.

Finally the report focuses on the implementation of the recommendations and actions needed to effect the transfer of full responsibility for running the public services on each atoll by 30 June 2004.

In the longer term the Review Team recommends transferring the key support and advisory functions of national government to Tokelau, with a smaller Apia Office. Each local Office of the Taupulega would perform the key national functions on a rotational basis.