Organizational culture in the public sector in Iraqi Kurdistan: a baseline assessment

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Department of Public Administration Educational and Scientific Institute of Public Administration and Civil Service, Taras Shevchenko National University of Kyiv

Organizational culture in the public sector in iraqi kurdistan: a baseline assessment

Kamaran Kamal Karim Graduate student

Kyiv

Abstract

This article is dedicated to the study of organizational culture in the public sector organizations in the Iraqi Kurdistan Region (IKR), which affects their productivity and efficiency. The author used the Organizational Culture Assessment Instrument (OCAI), which is based on the Competing Values Framework Model of Quinn and Cameron, to classify organizational culture into four types: market, hierarchy, clan, and adhocracy. Each type of organizational culture has its own features, advantages, and disadvantages, as well as corresponds to a certain style of leadership, strategy, goals, and values of the organization. The author conducted a survey of two large public sector organizations in IKR, using a questionnaire translated into Kurdish. The questionnaire consists of six questions, which relate to four aspects of organizational culture: dominant characteristics, leadership, management of employees, and criteria of success. The respondents had to distribute 100 points among four options of answer for each question, indicating how much they reflect the current and desired state of organizational culture in their organization. The author analyzed the data and presented it graphically, showing the perception of the current and desired state of organizational culture in both organizations. The author concluded that the organizational culture in the public sector of IKR was strongly influenced by the traditional Kurdish culture, which is group-oriented and communal. The author also found that the clan culture prevailed in both the current and the future state, followed by the hierarchy culture. The author suggested that the organizational culture in the public sector of IKR needed further research and development, as well as adaptation to the changing conditions and challenges. The author also provided recommendations for improving the organizational culture in the public sector of IKR, such as involving employees in the decision-making process, creating a favorable climate for innovation and learning, strengthening communication and cooperation among different levels and departments of the organization, and developing leadership skills and competencies of managers. The author also noted that this study had some limitations, such as a small sample, possible bias of respondents, lack of comparative analysis with other regions or countries, and insufficient depth and breadth of the study of organizational culture. In this regard, the author called for further studies of organizational culture in the public sector of IKR, which would take into account these limitations and expand the knowledge on this important topic.

Keywords: organizational culture; Iraqi Kurdistan; OCAI; public sector; organizational performance

Анотація

Камаран Камал Карім аспірант кафедри державного управління, Навчально-науковий інститут публічного управління та державної служби, Київський національний університет імені Тараса Шевченка, м. Київ,

ОРГАНІЗАЦІЙНА КУЛЬТУРА В ДЕРЖАВНОМУ СЕКТОРІ В ІРАКСЬКОМУ КУРДИСТАНІ: БАЗОВА ОЦІНКА

Ця стаття присвячена дослідженню організаційної культури в органах державного сектору в регіоні Іракського Курдистану, яка впливає на їхню продуктивність та ефективність. Автор використав Інструмент оцінки організаційної культури (OCAI), який базується на моделі конкуруючих цінностей Квінна та Кемерона, щоб класифікувати організаційну культуру за чотирма типами: ринок, ієрархія, клан і адхократія. Кожен тип організаційної культури має свої особливості, переваги та недоліки, а також відповідає певному стилю керівництва, стратегії, цілям та цінностям організації. Автор провів опитування двох великих організацій державного сектору в Іракського Курдистану, використовуючи анкету, перекладену на курдську мову. Анкета складається з шести питань, які стосуються чотирьох аспектів організаційної культури: домінуючих характеристик, керівництва, управління співробітниками та критеріїв успіху. Респонденти повинні розподілити 100 балів між чотирма варіантами відповіді для кожного питання, вказуючи, наскільки вони відображають поточний та бажаний стан організаційної культури в їхній організації. Автор проаналізував дані та представив їх графічно, показуючи сприйняття поточного та бажаного стану організаційної культури в обох організаціях. Автор робить висновок, що організаційна культура в державному секторі Іракського Курдистану зазнала сильного впливу традиційної курдської культури, яка є орієнтованою на групу. Автор також виявляє, що кланова культура переважає як в поточному, так і в майбутньому стані, після чого слідує ієрархічна культура. Автор пропонує, що організаційна культура в державному секторі Іракського Курдистану потребує подальшого дослідження та розвитку, а також адаптації до змінюваних умов та викликів. Автор також надає рекомендації щодо покращення організаційної культури в державному секторі Іракського Курдистану, такі як залучення співробітників до процесу прийняття рішень, створення сприятливого клімату для інновацій та навчання, зміцнення комунікації та співпраці між різними рівнями та відділами організації, а також розвиток лідерських навичок та компетенцій керівників. Автор також зазначає, що це дослідження має певні обмеження, такі як мала вибірка, можлива упередженість респондентів, відсутність порівняльного аналізу з іншими регіонами або країнами, а також недостатня глибина та ширина дослідження організаційної культури. У цьому зв'язку, автор закликає до подальших досліджень організаційної культури в державному секторі Іракського Курдистану, які б враховували ці обмеження та розширювали знання про цю важливу тему.

Ключові слова: організаційна культура; Іракський Курдистан; OCAI; Державний сектор; організаційна ефективність

Formulation of the problem

In the last several years, Iraqi Kurdistan has faced crises of immense proportion [1]. This started with the near run over by the so called the Islamic State [2] [3]. Followed by the near collapse of the economy as a result of political tensions between the regional government based in Erbil and the central government in Baghdad [4]. Now COVID 19 has caused untold misery and suffering for the people of the region [5] [6]. With a shrunk budget and ballooning wage bill in the public sector, the regional economy is at the brink of collapse. This new reality has given rise to a new call for reforms and transformation of the institutional landscape in the region [7]. Arguably, one of the aspects that needs transformation is organizational culture, in order to embrace efficiency so as to come to life with this new economic reality.

Analysis of recent research and publications

Organizational culture has emerged as a major area of research and scholarship since the 80's and 90's. Probably as a result to the considerable interest, many studies have emerged. However, most of the research are drawn from the western environment and there has been limited or even no evidence of such research with a Middle Eastern or Iraqi setting in particular [8], [9]. The idea that organizational culture influences team and organization performance directly or indirectly both individually and collectively is well-established in Western work cultures. For example, Kotter and Heskett (1992) [10], in their book corporate culture and performance provided perhaps the very first thorough analytical examination of how a company's «culture» may either positively or negatively have a significant impact on its financial success. much worse. The book is the result of meticulous research at organizations including Hewlett-Packard, Xerox, ICI, Nissan, and first Chicago as well as a quantitative analysis of the link between culture and performance in more than 200 corporations. The two authors, who were Harvard professors described how shared values and unwritten rules can profoundly enhance economic success.

Similarly, Martin (1992) [11] delves into the majority of organizational culture study follows three theoretical traditions: a position on integration that claims cultures are characterized by coherence, general agreement, and clarity. A fragmentation perspective sees cultures as being permeated by ambiguities, such as contradictions, paradoxes, irony, lack of consensus, and lack of clarity. A differentiation perspective contends that organizational «culture» is actually a collection of quite distinct subcultures that coexist in harmony, conflict, or mutual independence. Schein [11] in Leadership and Organizational Culture, regarded as one of the most influential managements converts the amorphous idea of culture into a tool that may be utilized to better control organizational and change dynamics. Although the commercial sector is the subject of the majority of organizational culture research, there seems to be little attention paid to the public sector. Schraeder, Tears, and Jordan (2005) [12] examined organizational culture in public sector organizations as a way of fostering change through training and setting an example. Harrison and Baird in (2014) [13], examined the organizational culture of public sector organizations in Australia. Yosinta (2016; 2018) [14], [15] examined organizational culture and good governance in the public sector --the case of performance agreement (PA). Nowadays, in the face of declining budgets, public sector organizations just like business firms operating in competitive markets are consistently under pressure to change and improve so as to appeal to stakeholders. In Iraqi Kurdistan this pressure has been occasioned more by the budget shrinking over the years.

According to Joseph and Sumer (2019) [16] the overinflated public sector in the IKR, has placed increasing strain on a local economy that is already in trouble. The IKR has often fallen victim to the resource curse that plagues many oil-rich states as an oil-rich emerging area. One sign of this affliction is the region's overgrown and ineffective public sector, which now accounts for more than half of all adult employees. It has grown over time for political reasons as well as due to poor financial management. According to the World Bank (2016) [17] in their report titled «Kurdistan Region of Iraq Reforming the Economy for Shared Prosperity and Protecting the Vulnerable», as of 2014 there were an estimated 1,207,143 employees in the whole of IKR. Out of these, «Around 680,000 people, or 11.6 percent of the workforce overall (including the military and police) and 8.3 percent of civil employees, are working in the public sector, which makes up a disproportionately large component of the labor force. For low- and middle-income nations, civilian employment as a proportion of population runs from 3.5 percent to 6 percent, respectively, and for the Middle East and Central Asia area, it is approximately 5 percent.» (p16). The public sector of the IKR presently represents a financial strain on the central budget of the Kurdistan Regional Government (KRG), making it more difficult for the area to develop a long-term labor market. The public sector in Iraqi Kurdistan is therefore marked by two key characteristics: one, its huge size - it dominates the economy; and two, its ineffectiveness in ensuring the provision of basic services to the citizens. As of November 2019, the executive arm of KRG consisted of up to 20 ministries and 5 departments. Under each ministry or department, there are several other departments, general directorates, boards, agencies and other entities. As a person who has worked in the public sector in Iraqi Kurdistan before, I have gathered anecdotal evidence that points these inefficiencies can be attributed to the poor work ethic and organizational culture exhibited in many public sector organizations. The aim of this study is to address the following pertinent research question: How can the organizational culture in Iraqi Kurdistan be characterized.

The purpose

Therefore, the objective of the study is to enable an accurate identification and characterization of the organizational culture in the public sector organizations in Iraqi Kurdistan Region (IKR). To address the research questions, a descriptive survey targeting two large public sector organizations in IKR was conducted via a self-administered questionnaire.

Materials and methods

Due to the COVID 19 restrictions that have been in place since the beginning of 2020 not only in Iraq but the whole world, the study focused only on two organizations in Iraqi Kurdistan.The OCAI model has been adopted in this study. The OCAI consists of six questions, each with four possible answers. Depending on how much respondents believe each option represents the organization they are a member of, they split their 100 points evenly among these four choices. «Now» refers to the first set of responses to the six questions. This speaks to the organization's culture at the time the questionnaire was filled out. The questions are then asked again with the label «Preferred.» There is a contrast between the present organizational culture (labeled «Now») and the desired organizational culture (designated «Preferred»). Respondents are asked to evaluate the organizational culture as it is now and then to anticipate what it could look like in the future. organizational culture productivity market

The same formulas are used to determine the future («Preferred») and present («Now») profiles. To get the average score, the sum of all A replies is put together and divided by six. Calculations for the average scores for B, C, and D are comparable. The organizational culture types A (clan), B (adhocracy), C (market), and D (hierarchy) are all represented by average scores. In order to plot the cultural profile, percentage scores are produced. To construct an organizational culture profile, the data was converted into a plot graph after being tabulated in Microsoft Excel for analysis.

Presenting main material

This study is a dual-case study that blends qualitative and quantitative methods. The majority of the data gathered is qualitative in nature. The unit of analysis is therefore two of the largest public sector organizations in the region with over 5,000 employees each. They are labeled as Organization one and Organization two respectively. Table 1 below contains the summary of responses received from the two organizations for both the «Now» and «Preferred» states in terms of the OCAI organizational culture dimensions.

Table 1 Summary of data

In the table, the variables are represented by: A= Clan - The term «clan culture» refers to a family-like atmosphere inside an organization. Clan, as it relates to organizational culture, refers to those groups that are close -knit, collaborate as a community, and often prioritize the interests of their associates and workers.

B= Adhocracy - Adhocracy culture is rooted in innovation. It represents organizations with adaptive mindset, flexible working conditions, on -trend innovation and dynamic production/operations.

C= Market - Profitability is prioritized in the market culture. Every decision is made with the bottom line in mind, and each job has a purpose that is consistent with the overall mission of the business.

D=Hierarchy - Hierarchy cultures have a set way of doing things, which makes them stable and risk-averse. Organizations cultures that value hierarchy stick to the conventional business structure. These businesses place a strong emphasis on internal structure, separating workers from the top management via a distinct chain of command and various management echelons. The data obtained is analyzed and discussed, for each of the dimensions, under the following headings.

Cultural dominance. The primary indicators of culture dominance are the culture types with the highest results. For the two organizations, the results are as depicted in Figure 1 below.

Fig.1 Dominant characteristics

In both cases, in terms of cultural dominant characteristics, the clan culture seems to be the most preferred, i.e., at 35 and 30 per cent respectively. The existing dominant cultural characteristic however is quite different. The results indicate hierarchy as dominant for organization one (35) and market culture (30 percent) for organization two.

Organizational leadership. Organizational leadership is the process through which leaders encourage team members to effectively complete tasks in support of the organization's strategic objectives while also assisting in the establishment of those goals. Therefore, organizational leadership serves as the pivot point for striking a balance between the demands of the workforce and those of the company.

Fig.2 Organizational leadership

In terms of organizational leadership, the existing organizational leadership culture for both organizations is market type. While the adhocracy culture seems to be the most preferred for Organization one, i.e., at 40 percent. For Organization two on the other hand, the preferred organizational leadership style is more balanced for clan, adhocracy and hierarchy at 30 per cent each.

Management of employees. In order to accomplish the organization's bigger aims, this refers to the effort made to support workers in doing their best job each and every day. It is a procedure that supports your employees' peak performance and the accomplishment of your company's objectives. It's a comprehensive procedure that encompasses practically all aspects of human resources. whereby you create a functional, efficient workplace by capitalizing on the strengths of your employees and motivating them and facilitating their growth.

Fig.3 Management of employees

In terms of management of employees, the existing management of employee's culture for Organization one is market type (35 per cent) while for Organization two it is hierarchy (35 per cent). The preferred management of employee's culture for Organization one is balanced between clan and adhocracy culture (35 percent for each) while for Organization two it is more of clan culture (35 per cent).

Organization glue. Organization glue is that aspect of organizational culture that relates to the extent to which everyone jells within the organization and task environment. Where members do not jell, they are bound to work and act at cross purposes and thus impede on the organizational performance. This is supported by Cameron and Quinn's (1998, p. 85) position that, «Cultural incongruence often causes disparities in viewpoints, objectives, and methods within an organization. This in turn depletes the organizational members' motivation and attention..» therefore, organizational culture is seen as a glue between people and the organization they belong to. In this study, the organizational glue for the two organizations is revealed as presented in Figure below.

Fig.4 Organization glue

As depicted in Figure 4, in terms of organizational glue, the existing organizational glue culture for Organization one is more of hierarchy type (40 per cent) while for Organization two it is balanced between clan and adhocracy culture (30 percent for each). The preferred organizational glue culture for Organization one is balanced between clan and adhocracy culture (30 percent for each) while for Organization two it is more of hierarchy culture (30 per cent).

Strategic Emphases. Here, the strategic emphases provide information on the organization's identity, character, and future course. If they don't know this, the executives won't be able to properly guide the company since they won't understand why it exists and where it's going. Success of businesses is significantly influenced by top management's decisions about strategic emphases (such as value-creation vs value-appropriation) (Wang et al, 2020).

As depicted in Figure 5 above, in terms of strategic emphases, the existing strategic emphases culture for both organizations is more of hierarchy type 30 percent and 50 per cent respectively. The preferred strategic emphases culture for Organization one is balanced between clan and adhocracy culture (30 percent for each) while for Organization two it remains hierarchy culture but with a lesser degree (30 per cent).

Criteria of Success. This is quantifiable information on what the task's intended result should be in order for the end user, client, and stakeholders to be satisfied.

Fig.6 Criteria of success

In both cases, in terms of criteria of success the existing culture for both organization is the hierarchy type of 35 per cent each. While the preferred criteria of success culture are clan type for Organization one (40 percent) and for Organization two it is a lower degree hierarchy (30 per cent).

Total (the sum of everything). The total here is the sum of all factors put together.

Fig. 7 Total sum of all factors put together

When everything is put together, the existing culture for both organizations is the hierarchy type of 32 per cent and 33 per cent respectively. For the preferred culture both organizations are clan culture of 35 per cent and 28 per cent respectively. These results suggest the participants believe the organization overall values stability and control but also prefer a clan like environment. In both cases, in terms of cultural dominant characteristics, the clan culture seems to be the most preferred, i.e., at 35 and 30per cent respectively. The existing dominant cultural characteristic however is quite different. The results indicate hierarchy as dominant for organization one(35) and market culture(30 percent) for organization two. These results suggest the participants believe the organization overall values stability and control.

Conclusion

The goal of the research was to identify and describe the kind of organizational culture that prevails in Iraqi Kurdistan's public sector entities. The data is really instructive as it has been examined and presented above. The parallels and contrasts between the two organizations were slightly better understood, and it provided insights that, for the most part, could be applied to the region's larger public sector. The study's findings support the widespread perception that traditional Kurdish culture is communal in nature and prioritizes the interests of the group above those of an individual. Organizational culture is shaped by a variety of intricate external and internal factors, as well as by the environment. According to the research, the Clan culture is the most prevalent in both the present and the future cultures, followed by the Hierarchy culture. The outcome demonstrates the internal emphasis of the organization, which means that the respondents strongly prioritize internal stability above holding a place in a competitive environment, as is often the case with state organizations or governmental organizations.

References

A. R. Ahmad and H. R. Murad, «The Impact of Social Media on Panic During the COVID-19 Pandemic in Iraqi Kurdistan : Online Questionnaire Study Corresponding Author :,» J. Med. INTERNET Res., vol. 22, no. 5, pp. 1-11, 2020.

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7. S. H. H. Z. D. F. S. H. Zyoud, «A bibliometric-based evaluation on environmental research in the Arab world,» Int. J. Environ. Sci. Technol., vol. 14, no. 4, pp. 689-706, 2017.

8. J. L. Kotter, J.P & Heskett, Corporate culture and performance, Free Press. New York: Library of Congress, 1992.

9. J. Martin, «Cultures in Organizations: Three Perspectives,» Oxford Univ. Press, vol. 19, no. 1, pp. 156-159, 1992.

10. M. Schraeder, R. S. Tears, M. H. Jordan, and M. H. Jordan, «Organizational culture in public sector organizations Promoting change through training and leading by example,» Leadersh. Organ. Dev. J., 2005.

11. G. L. Harrison, K. M. Baird, G. L. Harrison, and K. M. Baird, «The organizational culture of public sector organizations in Australia,» Aust. J. Manag., vol. 40, no. 4, pp. 613-629, 2014.

12. O. Yosinta, «Organizational Culture and Good Governance In the Public Sector: The Case of Provincial Administration Thailand,» Thesis Univ. Birmingham, no. September, pp. 1-436, 2018.

13. O. Yosinta, «Organizational culture and good governance in the public sector: the case of provincial administration in Thailand,» University of Birmingham, 2016.

14. J. S. Joseph, Public Sector Reforms in the Kurdistan Region of Iraq: Tackling the Socially Constructed Barriers to Change. 2019.

15. World Bank Group. 2016. The Kurdistan Region of Iraq: Reforming the Economy for Shared Prosperity and Protecting the Vulnerable.

Література

A. R. Ahmad and H. R. Murad, «The Impact of Social Media on Panic During the COVID-19 Pandemic in Iraqi Kurdistan : Online Questionnaire Study Corresponding Author :,» J. Med. INTERNET Res., vol. 22, no. 5, pp. 1-11, 2020.

16. U. S. Response and U. S. Response, «Armed Conflict in Syria: Armed Conflict in Syria :,» Congr. Res. Serv., 2020.

17. D. Meier, «` Disputed territories ' in northern Iraq: The frontiering of in -between spaces,» Mediterr. Polit., vol. 00, no. 00, pp. 1 -21, 2019.

18. G. Stansfield & L. Anderson, «Stansfield 20Anderson 2C gs 20final 20 edit_1_,» Middle East Policy, vol. 16, no. 1, pp. 134--145, 2009.

19. F. D. Salman and J. H. Kamel, «COVID-19 Dental Students ' Knowledge of Medical Technical Institute Dental Assistant Department ( Erbil-Iraq ) A Comparative Study,» Acta Sci. Med. Sci., vol. 5, no. 11, pp. 86-100, 2021.

20. S. W. Smail, «Serum IL-23 and IL-10 as predictors of disease progression and severity in COVID-19 patients,» Res. Sq., vol. 1, no. 16, pp. 2-11, 2022.

A. S. Weaknesses and K. Region, «In The Best of Times and The Worst of Times :,» no. January, 2016.

21. Saif Husam Mohammed and Laszlo Kinyo, «The cross-cultural validation of the technology-enhanced social constructivist learning environment questionnaire in the Iraqi Kurdistan Region,» Res. Pract. Technol. Enhanc. Learn., vol. 199, no. 7, pp. 17-25, 2022.

22. S. H. H. Z. D. F. S. H. Zyoud, «A bibliometric-based evaluation on environmental research in the Arab world,» Int. J. Environ. Sci. Technol., vol. 14, no. 4, pp. 689-706, 2017.

23. J. L. Kotter, J.P & Heskett, Corporate culture and performance, Free Press. New York: Library of Congress, 1992.

24. J. Martin, «Cultures in Organizations: Three Perspectives,» Oxford Univ. Press, vol. 19, no. 1, pp. 156-159, 1992.

25. M. Schraeder, R. S. Tears, M. H. Jordan, and M. H. Jordan, «Organizational culture in public sector organizations Promoting change through training and leading by example,» Leadersh. Organ. Dev. J., 2005.

26. G. L. Harrison, K. M. Baird, G. L. Harrison, and K. M. Baird, «The organizational culture of public sector organizations in Australia,» Aust. J. Manag., vol. 40, no. 4, pp. 613 -629, 2014.

27. O. Yosinta, «Organizational Culture and Good Governance In the Public Sector: The Case of Provincial Administration Thailand,» Thesis Univ. Birmingham, no. September, pp. 1-436, 2018.

28. O. Yosinta, «Organizational culture and good governance in the public sector: the case of provincial administration in Thailand,» University of Birmingham, 2016.

29. J. S. Joseph, Public Sector Reforms in the Kurdistan Region of Iraq: Tackling the Socially Constructed Barriers to Change. 2019.

30. World Bank Group. 2016. The Kurdistan Region of Iraq: Reforming the Economy for Shared Prosperity and Protecting the Vulnerable.

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