GOOD PUBLIC GOVERNANCE AND RECORDS MANAGEMENT:

An Overview Of Current Scenario In Malaysia.

Fakhurrazi Ibnu Omar
Al Bakri Mohamad
Muhammad Azhan Abdul Aziz
Faculty of Information Management
Sarawak Campus
Colloquim 24-26 September 2005
UiTM Sarawak, Kuching.
Abstract

Records management deals with any official transaction and business processes that take
place within public office. Naturally records will undergo phases of organism lifecycle to
have attachment to content, context and structure of event they represent. Public office in
the dominator side that creates all those abundant records, prone to become issue of
public mistrust perception. Good records management then needed to reform part of its
management in objective of imposing good governance and preserve the right of the
citizens. The objective is to signify certain face lift in improving public good governance
in having good records keeping, evidence based decision, transparency, quality assurance
and accountability.

Keywords: records management, good governance, record keeping, evidence based

decision, transparency, quality records .

Introduction

Government organization lately come under spotlight of blatant use of power,

malpractice, corruption and so forth allegation. Is it all true or just kind of animated case
that being added some drama element along the way? Government organization various
government ministries, department, statutory bodies (FELDA,RISDA), the Armed
Forces, universities and of-budget agencies. These organizations are funded by tax
ringgit, paid by citizen, the public. Therefore they come under close scrutiny from public
and interest group. They not measured by bottom line like private sector organization1.
Dato’ Seri Abdullah in its resolution to bring new image of fast decision making,
introduce the good public governance that among other thing stressed on accountability,
reforms and service to the public. Public use to hear about corporate governance, a string
attached to audit, control and identify the right and responsibilities, legitimize action and
determines accountability. It a philosophy concern with derivation, use and limitation of
power.

As a public funded organization, government and its agencies are subject to audit, query
and complaint from public. Differ from private sector in term of defined bottom line,
government bound to the social responsibility and oath of civil service. A government
agenda to adopt good corporate governance in its administration - bring about some fear

1
Management in Malaysia: base text in general management with local reference to managing a
Malaysian business. Institut Pengurusan Malaysia, 1999:44

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of incapability to transforming the rooted practice. Prime Minister act as CEO to the
Malaysian Inc, and its subordinate must have the same thinking. Rather a concept than a
practice, but it’s a good work worth to be done. Under the Dasar Persyarikatan Malaysia
or Malaysia Incorporated Policies, there must be a good cooperation between public and
private sector. To achieve it, public perception towards the way civil service work and
execute must be turned. Public sector especially financial institution already submitted to
comply to corporate governance and adequacy audit, they then demand the same practice
happen in its public counterpart.

People as well relate it to the power shifting from former premier, Tun Mahathir
Mohamad to Dato’ Seri Abdullah Badawi is somehow divulging a hereditary disease.
Comes under fire is the Government Link Company which rely much of its business from
government tender. Tender confidential information leakage, outside lobbying are among
other issue bring forward to the GLC’s and contractor business politicking. The premier
successor then under the banner of national integrity plan, order a comprehensive post
mortem includes surprise visit to public department. This action gives some improvement
in public sector especially for proper documentation, public service and public servant
attendance, small step for a giant leap.

Approved Permit either franchise or open recently is heated argument between Ministry
of International and Trade Industry. Willful action taken by the Prime Minister to made
public the who’ who list or AP recipient add some color to government stern policy of
eroding malpractice, corruption and the vice.

Act on above circumstances, it is about times to re-highlight various component that

academician, policy maker’s and enforcement people can act, review and contribute
before it’s too late. This opinion paper focus on providing insight into how a good and
sound records management do its part and partial role in fighting corruption, misuse of
power, unaccountability and restore rest assured quality, transparency of a good public
governance.

Records management acts as output or product of every official transaction. Give

evidence of an activity- any action or set of action undertaken by an individual, a group
of individual or a corporate body, or by employees or agents acting on its behalf, and
resulting in a definable outcome.2

2
Elizabeth. Shepherd, Yeo, Geoffrey. Managing records: a handbook of principle and practice.
Facet : London, 2004,p-2.

2
 Good governance requirement.

Good records keeping.

Role of recordkeeping in relation to accountability amongst are: facilitating good

governance that underpinning accountability mechanisms, constituting corporate,
national and societal memory, constructing individual, community and national identity,
providing authoritative sources of information3.

These listed functions should be given top priority. Personal visit and informal
observation to various federal public agencies in Malaysia, post specifically designed to
manage records is varied, or vague. Chief clerk, secret room clerk (kerani bilik sulit),
administration executive officer, file clerk are amongst post that responsible in
maintaining record keeping. The policy is clear, but the enforcement is lack of
consistency, it due to the size of organization, level of operation significance and post
warrant unavailability to recognize the post. Task of monitoring records management in
most public agencies assigned as additional task (tugas-tugas tambahan) to any
experienced officer.

IRMT/World Bank Evidence-based Governance in Electronic Age in it’s summary for

Global Forum Electronic Discussion’s Public Sector Reform and Record Keeping agreed
that there is importance of having quality record keeping for all aspects
of public sector reform, the institutional capacity needs to be
strengthened overall, and top-level support is required.
Result from the forum, collective participants had identified five
distinct issues that are:
• the need to link accountability and efficiency with quality record
keeping;
• the need to protect critical government records;
• the importance of ensuring a smooth transition to electronic
technologies and protecting paper and electronic records in the
process;
• the need to manage human resources records so that the
objectives of civil service reform are well met throughout
government; and
• the importance of ensuring sufficient institutional capacity for
quality record keeping to achieve the long-term goals of
improved accountability and efficiency in government.4

3
Sue McKemmish. The Smoking Gun: Record Keeping and Accountability. Records Continuum
Research Group, PTAR Library 12 August 2005
4
International Records Management Trust . Evidence Based Governance in Electronic Age. 12
September 2005.
http://www.irmt.org/evidence/

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Evidence based decision.

Causes of bureaucratic corruption are; low morale standard of individual bureaucrat, by

the deficiencies of the administrative system, and by the pressure and constraint which
society imposes on official5. Deficiencies in the various component in public control
mechanism, named it in area like administrative, financial, or human. Due to these
control- guidelines, documentation, and paperwork’s established to serve as legit
mechanism in decision and action of officials. Records will be show either they comply
or not in course of their action, if yes those records suppose to be well managed as
evidence.
International Records Management Trust Project’s “ Evidence Based Governance in
Electronic Age” focus on studying the loss of control of records and information systems,
particularly in electronic environments. Accurate official records should provide the basis
for poverty reduction, the rule of law, economic development, and accountability
frameworks6.
Records management programmed initiation in any organization should be inspired by
social corporate responsibility amongst other thing. Academician and thinkers in records
management field must work hand-to-hand in with public official, enforcement,
administration, and policy maker to materialize it. Paul H. Appleby (1949) noted in his
lecture and works that tendency of many academician and practitioners to view policy
and administration as separate activities and not see administration as having little or no
policy-making role; this should be immediately demolished. It ia among the de facto
reason why marketing of records management concepts in higher level accepted in partial
only.

Public agencies are required to comply with circular and directives from its central
agencies such as Prime Minister department, Treasury, Public Service Department
regarding the their records keeping keep sake, for example Surat Pekeliling
Perbendaharaan Bil.9 1986 clearly outlined that financial account book and records
should be in good records keeping, disposal must be prior to Federal/State Accountant
consent. This to ensure that all financial records audited first, and there is no reason for
malevolent disposal.

“Every act of the public employee is a seamless web of discretion

and action – “
Luther Gulick.7

Statistic provided by Anti Corruption Agency http://www.bpr.gov.my/ for year 2004 alone
recorded 982 case under investigation, 50 convicted and 718 reports received8.
5
Phangpariat and Piriyarangsar. Compliance and democracy in Thailand. Chiang May, Silkhew
Books, 1996; 179.
6
Op. cit; International Records Management Trust.
7
Luther Gulick. Politic, Administration and the New Deal. 1933;p 561
8
Corruption report 2004. Anti Corruption Agency. 16 August 2005. http://www.bpr.gov.my/

4
Malaysia’s 39th most corrupted Corruption Perception Index (CPI) by Transparency
International http://www.transparency.org/ 2004 from 146 nation9. Corruption index
pools evidence that private sector records for 13.3 percent, politician 11.1 percent, non-
government organization 7.4 percent and public sector 6.5 percent. This statistic
revealing a reality of our own country terrible disease. Despite the public perception of
politician and public sector corruption, evidence show on the other part is more likely
worst case.

Records and transparency:

Certain procedure, recorded has significance effect on public, in what condition should it
make public, should free access of information overruled the Official Secret Act, how
long then OSA embedded into records until it make public. Freedom to Information is
concern with public access into public records, to facilitate a need to know basis of how
government decision and policy affect their lives.
The earliest legislation governing open records dates back in year of 1776 in Sweden that
outlines key point on FOI law that are; legal right on citizens that can be enforced, seek to
change the culture of secrecy within the civil service, provide access to records not just
information and define right of appeal10. Information released by public authorities
should be in accord with what means by transparency requirement without alteration and
derived meaning. That’s why access to records required despite the availability of
information request normally by public.
Records transpire a transparency practice in much organization, as a formal requirement
of auditing both internal and external. All necessary evidential records must be there,
common excuse such as misplaced, missing in action considered as invalid since a
thorough in and out or records procedure already establish.
Administration live outside the proper sphere of politics. Administration question are not
political question. Although politics sets the task for administration, it should not be
suffered to manipulate it’s office

9
“Corruption perception index”. Transparency International. 16 August 2005.
http://www.transparency.org/.
10
“The right to information, information, public awareness and public records.” TI Source Book
2000. Transparency International, 2000, 235-246.

5
Records and quality assurance

International Standard Organization (ISO) quality management requirement

documentation directly addressed records management as one of it overall accreditation
element. ‘field of management responsible for the efficient and systematic control of
creation m receipt, maintenance, use and disposition of records’.11
Quality assurance stress on continuous improvement in organization, and its can be
materialized in proper documentation.

Plan Do

Act Check E
X
C
Standard setting E
L
L
E
N
C
E

Figure 1:Ascending quality improvement

Sources: Koch, 1990.

Quality accreditation process scrutinized every working document and paperwork to find
any compliance and non-compliance. Records management born genetically with every
action taken where they are among output of process.
Referring to above figure- interpreted in every quality improvement activity take place,
records will provide solid evidence on how effectively every element within institution
plan, do, check and act accordingly. If there is any auditing process occur, officials will
scrutinized every minor and major detail of – either it’s a plan that flaw, or fail; or do or
doer failure; or is there any remedial action or check take place, or is the act or execution
that lead to non-compliance.
People usually kept their mouth shut, or create some reasonable excuse to it, but
remember records talk here, unless there is none. Officials in course of duty will probably
able to defend themselves with make-up records but there could be any loose joints in
either its content, context and structure.

Records and accountability.

11
International Standards Organization. ISO 15489-1:2001 Information and documentation-
records management-Part 1: general.

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Records management principles suggest that its evidence to every act and decision taken
within organization. Scene investigation regarding any criminal breach of trust (CBT)
suggests that inspection normally will be conducted to any existing document(s). And its
always include into power jurisdiction of any bureau, agency that investigate the case, for
example Singapore’s ICAC’s power to hold and examine business and private document,
empower them to enforce law towards classified document. A prudent records
management policy will surely vest officials and public institution with full responsibility
to its action and decision. There is a proof to tail them.
As noted by Woodrow Wilson in 1887 that “there is the view that public administration is
made distinctive by its relationship to the governmental process and that this relationship
required that special ateliers be part to such normative concerns as justice, freedom and
responsibility”.

Cultural use

Support for internal and external

accountability

Business use

Figure 2: Reason for keeping records

Source Elizabeth Shepherd., Geoffrey Yeo (2003)

Good records management orderly defend institution, organization and party from falling
into condition where they either unable to provide evident of policy and procedures
compatibility, defend against liability claims, prove its rights and protect assets
Some may argue that with too much public release of government records may impede
the official’s operative nature, thus later slowing down the decision and action taken.
A few good question highlighted in Transparency International Source Book 2000 in
regards with public sector records are:
 Are there clear administrative instructions on the maintenance of public records?
If so, are these generally observed; and
 What policies exist concerning the provision of information to the public?

Governance Objective Key Records Required

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 rule of law legislative records
court records
police records
prisons records
accountability accounting records
procurement records
tax records
customs records
electoral registers
policy files
case files
management of state resources budget papers
policy files
accounting records
personnel records
payroll records
procurement records
fixed assets registers
property registers
protection of entitlements pension records
social security records
land registration records
birth/death records
services for citizens hospital records
school records
foreign relations and international obligations treaties
correspondence with national and international
bodies
loan agreements

Table 1:Governance Objectives and Records

Source: The World Bank Group12

This table show how a governing body interdependent with various category of records in
course of its action and operation. Availability of those records will transpire its
accountability, transparency and quality management. Records keeping should be able to
cope with growing collection of unmanaged records.

Conclusion

12
The World Bank Group. Records Keeping and Accountability. 16 September 2005.
http://web.worldbank.org/WBSITE/EXTERNAL/EXTARCHIVES/0,,contentMDK:20035498~page
PK:36726~menuPK:57185~piPK:36092,00.html

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The marketing of records management concept, and its significance importance towards
support of core operation in any public institution/agency should become continuous
priority for every records professionals. Through this opinion paper, it is hoped soon
there will be cooperation between academician, administration and policy maker into
establishing a national plan for records management with concern in creating records
officers, and guidelines to be followed. Sector that have start adopting a records
management programmed into their total quality accreditation (MSQH requirement) are
health. The very difference between academician and officials thinking regarding records
management should then be stamp out.

REREFENCE:

Corruption perception index. Transparency International. 16 August 2005.

< http://www.transparency.org/.>

Denhordt, Robert B. Theories of public organization. 4th ed. Thomson-Wadsworth:

California, 2004

Luther Gulick. Politic, Administration and the New Deal. 1933.

International Records Management Trust . Evidence Based Governance in Electronic

Age. 12 September 2005.
http://www.irmt.org/evidence/

International Standards Organization. ISO 15489-1:2001 Information and

documentation-records management-Part 1: general.

Jack, Kim. Anti Corruption System, Effects and Strategies in Asia. Fighting Corruption
in ASIA: Causes Effect and Remedial. John Kidd, Frank-Jurgen Richter. World
Scientific: New Jersey, 2003

Luther Gulick. Politic, Administration and the New Deal. 1933.

McKemmish, Sue. The Smoking Gun: Record Keeping and Accountability. Records
Continuum Research Group, PTAR Library 12 August 2005.

Management in Malaysia: base text in general management with local reference to

managing a Malaysian business. Institut Pengurusan Malaysia, 1999.

Phangpariat and Piriyarangsar. Compliance and democracy in Thailand. Chiang May,

Silkhew Books, 1996.Corruption report 2004. Anti Corruption Agency. 16August
2005.

9
 < http://www.bpr.gov.my/ >

Shepherd, Elizabeth. and Geoffrey Yeo,. Managing records: a handbook of principle and
practice. Facet : London, 2004.

The right to information, information, public awareness and public records. TI Source
Book 2000. Transparency International, 2000, 235-246.

The World Bank Group. Records Keeping and Accountability. 16 September 2005.
<http://web.worldbank.org/WBSITE/EXTERNAL/EXTARCHIVES/0,,contentMDK:20035498~page
PK:36726~menuPK:57185~piPK:36092,00.html >

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