Public Administration Circular No.

05/2008

My No: AR/CCG/01
Ministry of Public Administration and
Home Affairs
Independence Square
Colombo 07.
February 06, 2008.

Secretaries to the Ministries

Chief Secretaries of Provincial Councils
Heads of Departments
Heads of Public Corporations and Statutory Boards

Introduction of the Citizens’ / Clients’ Charter

01. The Secretary to the Cabinet by his letter No:wum 07/2184/301/039 of 20 December
2007, has informed me that the Cabinet of Ministers has decided that all government
organizations should introduce Citizens’/Clients’ Charters in their respective
organizations.

02 The Ministry of Public Administration and Home Affairs is establishing an

institutional mechanism to give effect to this decision. It is requested that your
Ministry, Department, and Organization pay special attention to the under mentioned
take necessary action to implement Citizens’ Clients’ Charters in your respective
organization.

2.1 Coordination of the Scheme

This Ministry will coordinate the implementing of Citizens’/Clients’ Charters

by all government organizations. However each Ministry should coordinate
the implementation of Citizens’/Clients’ Charters in the Departments and
other organizations (including Corporations, Statutory Authorities, Boards,
etc.) coming under the purview of the Ministry.

2.2 Guidelines for Preparing a Citizens’/Clients’ Charter.

The necessary guidelines to prepare a Citizens’/Clients’ Charter is given in

Annexure A to this circular. It is requested that these guidelines be studied
carefully when preparing the Charter in respect of your Ministry
/Department/Corporation/Statutory Authorities, etc.

2.3 Supervision and Monitoring

To ensure that productive and high quality services are provided, it is essential
that each Ministry, Department, Corporation etc. should develop an internal
 system to supervise and monitor the preparation and implementation of its
Citizens’/Clients’ Charter.

2.4 Training for Preparing Citizens Charters

The Sri Lanka Institute of Development Administration (SLIDA) will provide

the required training and skills to officers in how to prepare Citizens’
Clients’/Charters. This will be undertaken in the following stages.

i. Half a day orientation programme for Secretaries of Ministries.

ii. Training of Ministry and Departmental staff on preparing and
implementing of Citizens’/Clients Charters will be undertaken by
SLIDA according to the needs of the respective Ministries and
departments.

03 It is expected that within the next o6 months Citizens’/Clients’ Charters will be

prepared and implemented in all government departments I also wish to inform that at
the end of the 06 months period, this Ministry will be submitting a report to the
Cabinet of Ministers on the progress of the implementation of Citizens’/Clients’
Charters by the respective government and local government organizations.

04. You are therefore, kindly requested to take action to prepare and implement
Citizens’/Clients Charter as outlined above, in your Ministries Departments,
Corporations and other Statutory bodies under your Ministry.

Sgd: D.Dissanayake
Secretary
Ministry of Public Administration and Home Affairs
 APPENDIX “A”

GUIDELINES ON CITIZENS’ / CLIENTS’ CHARTER

1.0 Objective of the Guidelines

The objective of these Guidelines is to assist the Secretaries to Ministries, Heads of Government Departments /
Statutory Bodies to institute a Citizens’ / Clients’ Charter as a written commitment in provision of quality, fast,
efficient services tailored to meet the requirements of citizens.

1.1 The Concept of Citizens’ / Clients’ Charter

A Citizens' / Clients’ Charter is a written commitment made by a public institution such as a Ministry / a
Government Department / a Statutory Body in the deliverance of its services to the citizens of the country
recognizing that the citizens / clients have a right to receive such services from a public institution. It assures that
the services rendered will comply with the declared quality and standards. A Citizens’ / Clients’ Charter typically
displays in public, the services provided by a public institution along with time taken to deliver each service. A
Citizens’ / Clients’ Charter ensures / facilitates access to all ancillary information required to obtain a service from
an institution like copy of a birth certificate, passport, national identity card etc.

1.2 Principles to be adopted through Citizens’ / Clients’ Charter

In each step of the process of formulating a Citizens’ / Clients’ Charter, the following principles should be
adopted;

i. Setting standards of service to meet or exceed the needs / expectations of the recipients
(Considering the needs or expectations of the citizens as well as the capacity of the institution);
ii. Being open and provision of complete information to citizens with accuracy of facts;
iii. Consulting and involving citizens;
iv. Encouraging access to and use of services, and the promotion of choice among different modes of
service deliveries including online service delivery;
v. Treating all fairly, courteously and friendly;
vi. Putting things right when they go wrong;
vii. Using resources effectively;
viii. Making room for innovations;
ix. Working in harmony with the providers of connected services
x. Reliability, i.e., consistency in performance;
xi. Responsiveness, i.e., timely service;
xii. Credibility i.e., having customer interest at heart;
xiii. Empathy, i.e., attention to citizens’ / clients’ needs;
xiv. Courtesy, care, and availability, i.e., physical evidence of willingness and readiness to serve
xv. Simplicity in the use of language

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1.3 Components of a Citizens’ / Clients’ Charter

Following are the components of a typical Citizens’ / Clients’ Charter as practiced:

i. Vision and Mission Statements;

ii. Details of services delivered by the organization;
iii. Details of clients/recipients of services;
iv. Details of services provided to each client group;
v. Service standards/quality
vi. Requirements to be fulfilled by the client/service recipient
vii. Legislative and other provisions relating to obligations of the service providers and rights of the service
recipients
viii. Details of grievance lodging and redressal mechanism and how to access it;
ix. Expectations of the clients / recipients of services.

1.4 Steps to be followed

Formulation and implementation of the citizens’ / clients’ charter has to proceed through five principal stages of a
process, as follows.

A. Formulation of the Clients’ / Citizens’ Charter;

B. Promotion of the Clients’ / Citizens’ Charter;

C. Service Recovery;

D. Monitoring; and

E. Evaluation and Improvement.

Fig. 1 Stages of Citizens’ / Clients’ Charter and their Interconnection

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The following steps are proposed for formulation, implementation, monitoring and evaluation of a Citizens’ /
Clients’ Charter:

(A) Formulation Stage

(1) Preparation of a Work Manual

Step i Form a Team / Core Group for formulating the Charter;

Step ii Review the vision and mission of the ministry / department / statutory body
Step iii In the context of the vision and mission, identify all major services provided by the organization;
Step iv Identify all recipients of services and relevant stakeholders
Step v Identify requirements in terms of each service provided, such as forms to be filled, documents
to be submitted, fees to be paid etc by the service recipients
Step vi Draw up a work flow for each service considering preparations, recommendations,
certifications, approvals etc along with officers responsible for each point
Step vii Identify possibilities for delegation, and the nature of discretion that can be used at such points
Step viii Assess time required between the points of the work flow
Step ix Identify any delays between points and examine how the delays could be reduced
Step x Identify parallel or any redundant steps in the work flow
Step xi Identify any quality requirements or standards to be met at each point
Step xii Assess total time duration needed to deliver the service
Step xiii Consult Service Recipients/Stakeholders/Staff and their representative associations on the
above;

(11) Preparation of the Citizens’ / Clients’ Charter

Step xiv Extract Services Delivered and Time durations required to deliver each service from the Work
Manual, including requirements to be met by the citizens. This forms the Draft Charter
Step xv Circulate the draft among the staff for comments/suggestions;
Step xvi Modify the draft to include suggestions and finalize ;
Step xvii Appoint a Focal Point to ensure effective implementation;
Step xviii Check whether the following conditions have been met during the formulation stage.

• To be useful, the Charter must be simple;

• The Charter must be displayed in prominent places within the premises of the office.
• The Charter must be formulated not only by senior officers or experts, but by interaction
with the entire staff who will finally implement it and with the users Create conditions
through interaction and training for generating a responsive climate;
• Begin with a statement of the service(s) being offered;
• Mention against each service the entitlement of the user, service standards and remedies

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 available to the user in cases of non-adherence to the standards;
• Procedures/cost/charges should be made available on line/display boards/ booklets /
inquiry counters etc and at places specified in the Charter;
• Indicate clearly, the commitments enshrined in the Charter are in the nature of a promise to
be fulfilled with oneself and with the user;
• Frame a structure for obtaining feedback and performance audit and fix a schedule for
reviewing the Charter every six months at least;
• Separate Charters can be formulated for distinct services and for organizations / agencies
attached or subordinate to a Ministry/Department

(B) Promotion stage

The Ministry/Department/Statutory Body has to ensure that information on the Clients’ / Clients’ Charter is
disseminated to the public.

Step xix Disseminate the Charter if possible through the production of brochures or handbills. Information
contained in the brochure must be concise, clear, simple and easy to understand.
Step xx Print the Charter and display in front of the office and formally issue/release the Charter and
place it on website;
Step xxi Send copies to People’s Representatives and all stakeholders

(C ) Service Recovery Stage

There may be instances when a ministry/department/statutory body is not able to fulfill the pledges made in their
respective Charters. Should this happen it will adversely affect the image and credibility of the
department/agency concerned. As such, the ministry / department / statutory body must take immediate
appropriate action to restore the faith of the citizens. This process is called Service Recovery.

The service recovery can be carried out reactively or proactively: Reactive Service Recovery means that a
ministry/department/statutory body will take immediate remedial action when a complaint is lodged. In proactive
Service Recovery a ministry/department/statutory body will inform of its inability to comply to the stated standards
in the Charter before a complaint is lodged. When the ministry/department/statutory body realizes that it cannot
fulfill its promise, It must inform the customer on the status of the matter.

Few reactive steps are as follows on service recovery;

Step xxii Make an apology to the client involved either verbally or in writing;
Step xxiii Explain the reasons for non-delivery of an output or a service as stated in the Charter;
Step xxiv Inform the citizens on the status of the follow-up action to overcome the problem.

Few proactive steps are as follows on service recovery;

Step xxv Indicate the remedial measures, if things could go wrong (What could go wrong; Whom to
contact; What to expect to set it right).
Step xxvi Indicate how citizens can help the organization

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(D) Monitoring
Monitoring is to be carried out continuously by every ministry/department/agency to ensure adherence to the
pledges made in their respective Charters. The monitoring activities can be carried out by already existing
internal mechanisms and/or establishing an effective feedback and response system.

• Using Existing Internal Mechanism

Existing mechanisms such as quality/productivity circles can study the weekly/monthly/quarterly/annual

performance reports prepared by each division/unit/section.

• Establishing a Feedback and Response System

Use following instruments appropriately to obtain a feedback on the implementation of the Charter:

(a) Citizens’ / Clients’ feedback form;

(b) Suggestion box;

(c) News monitoring;

(d) Consultancy studies;

(e) Hot line services; and

(f) Client survey.

To manage the feedback, an effective response system can be created by:

Step xxvii Setting up of counters to facilitate the public to lodge complaints. These counters should be
prominently located. Appropriate and adequate facilities such as complaint forms and a list of
officers/divisions for referral should be provided.
Step xxviii Training of staff on handling and resolving problems faced by dissatisfied clients; and
Step xxix Agencies which handle numerous public complaints must equip their response systems with
appropriate facilities such as direct or hot line telephone services
Step xxx Creation of a system to record all feedback received and to issue acknowledgment slips
Step xxxi Negative as well as positive feedback should be extended to the respective division/unit/officers
where negative feedback would demand an immediate remedial action while positive feedback
conveys a sense of appreciation. To counteract any unintended effects from the negative
feedback, care must be taken to ensure that positive feedback is also conveyed to all the staff
through the publication of news letters or reports. This will ensure that the motivation level of the
staff is not adversely affected.

(E) Evaluation and Improvement

Step xxxii The ministry/department/agency shall use existing mechanisms for quality/productivity
improvement or establish a Steering Committee to evaluate feedback, ensure that the grievance
handling process is implemented systematically, and enable supervisors to monitor their
subordinates closely. The members of the committee should comprise the head of
department/agency and senior officers. The committee should plan, determine policy and

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 implementation strategies, coordinate, monitor, evaluate and determine further efforts required to
enhance the quality of outputs or services at the departmental level.

It is the responsibility of the Head of institution together with the Steering Committee to:

Step xxxiii Identify services which have not achieved the predetermined standards and their related
problems;
Step xxxiv Redefine standards for outputs or services to ensure that they are more realistic and achievable;
Step xxxv Identify types of outputs or services that can be expanded, curtailed or deleted without affecting
the achievement of organizational objectives; and
Step xxxvi Identify methods that could be used to further enhance the existing standards of outputs or
services.

1.5 Managing change

The successful formulation, implementation and monitoring of the Citizens’ / Clients Charter would lead to a
range of changes in the attitudes of staff, work processes, competencies and physical environment of the
institution. Action should be taken to address the following;

i The need for consultation of citizens and staff at every stage of formulation and implementation
of the Charter;
ii Orientation of staff about the salient features and goals/objectives of the Charter; vision and
mission statements of the institution; and skills such as team building, problem solving, handling
of grievances and communication skills; The Charter cannot be expected to be delivered by a
workforce that is unaware of the spirit and content of the Charter.
iii The need for creation of a database on consumer grievances and redress;
iv The need for wider publicity of the Charter through print media, posters, banners, leaflets,
handbills, brochures, local newspapers etc. and also through electronic media;
v Earmarking of specific budgets for awareness generation and orientation of staff, and
vi Possibility of taking in best practices in the field
vii Be mindful of the fact that transfers and reshuffles of concerned officers at the crucial stages of
formulation/implementation of the Citizens’ / Clients’ Charter in an organization can
undermine the strategic processes which were put in place and hamper the progress of the
initiative;
viii The standards/time norms of services mentioned in Citizens’ Charter can either be too lax or too
tight and, therefore, be unrealistic, thereby creating an unfavorable impression on the Citizens’ /
Clients’ Charter;
ix The issuance of Citizens’ / Clients’ Charter will not change overnight the mindset of the staff and
the clients. Therefore, regular, untiring and persistent efforts are required to bring about
intended / attitudinal changes.
x Instead of trying to reform all the processes at once and encounter massive resistance, it is
advisable to break the tasks into small components and tackle them one at a time.
xi The Charter initiative should have a mechanism for monitoring, evaluating and reviewing the
working of the Charters, preferably through an outside agency

The Citizens’ / Clients’ Charter is a dynamic concept, and this quintessential character underlines the need for
continuous study, analysis and planning in the process of implementation of the Citizens’ / Clients’ Charter.

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 MODEL FORMAT FOR CITIZENS’ / CLIENTS’ CHARTER
Name of the Institution……………………
“You are entering into a place ready to serve you”

Our Vision

Our Mission

Our Commitment

We assure through this citizens’ / clients’ charter our commitment in delivery of our services with

- Integrity

- Judiciousness

- Courtesy

- Understanding

- Objectivity and impartiality

- Transparency

- Accountability

- Promptness

- Efficiency and effectiveness

Our pledge
Service delivered Service delivery standard Relevant laws, codes, régulations etc
(hours/days/weeks)

Service delivered Information/documents to be In case you (the citizen) need help

submitted (including titles of any (name of officer, designation,
forms to be filled and where the form location. Telephone/fax/email)
is available any fees to be paid and
the location of the payment counter)

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Our expectation
We appreciate your confidence placed upon us and expect you to be reasonable, fair and prompt in making your
requests for our services, are true, correct and comprehensive in furnishing information to us, and have an
adequate understanding of what we can and cannot be delivering.

Our standards
We shall respond to all written communications promptly and in any case within 7 days of their receipt.

Deliver the services within the declared time durations provided specified information, documentation and fees
are furnished along with the request.

In case of likely or inevitable delay in making a final decision or when an issue is disputed, we shall promptly
communicate with you.

Complaint redressal system

Courteous and helpful service will be extended by all the staff. If you have any complaints to make with respect
to the delivery of the above standards you are welcome to register your complaints with the following officers

Name:- ………….. Name:- …………..

Designation:- ………………. Designation:- ……………….

Located at:- ……………… Located at:- ………………

Telephone/Fax/e-mail:-………………. Telephone/Fax/e-mail:-……………

• All complaints will be acknowledged by us within _____ days and final reply on the action taken will be
communicated within _______ days.
• We welcome suggestions from citizens/service recipients;
o We hold periodical ______ meetings with users/user representatives and if you wish to be
associated with this please contact _______ at _______.
o Please also enter your details at our website www…….. indicating your willingness to be available
for consultation, survey on the points enlisted in the Charter.
• Citizens’ / Clients’ Charter is a joint effort between you and us to improve the quality of service provided by
us and to serve you to the best of your satisfaction. While we are ready to serve you, we request you to help
us in the following way (give details relevant to the departments concerned) to serve you better.

We are committed to constantly revise and improve the services being offered under the Charter. LET US JOIN
HANDS IN MAKING THIS CHARTER A SUCCESS!