Transcript Document

ENHANCEMENT OF PERFORMANCE OF CIVIL
SERVICE – POLISH EXPERIENCE
Professor Jacek Czaputowicz
Director of the National School of Public Administration (KSAP) in Poland
Content of the Presentation
• Trends in public administration
• Historical background
• Characteristics of the Polish system of
civil service
• Forces behind reform, successes &
failures
Pressure on state
European Union
integration
State
globalisation
Transitional
Organisations
fragmentation
Local and regional authorities
Factors & effects
• Budget constraints
• Growing
expectations from the
public
• Pressure for greater
efficiency
• Fall in
unemployment
=> Lower spending on
administration
=> Service orientation,
improved quality
standards
=> Payment and
appraisal by
performance
=> Tighter competition
and the labour
market
Trends in Public Administration
• A need for the whole government
approach
• Tension between the long-term and
short-term perspectives
• Strengthening the civil service
Historical background
of the Civil Service
• Under the communist regime:
- No clear legal rules concerning the system of civil
service, recruitment, promotion and training
- Nomenklatura – system
Arbitrary decision in different sectors of public
administration
- Demonstration of political loyalty
- No clear decision concerning recruitment
Civil Service in Poland after 1989
• Creation of professional and politically neutral civil service
- 1989 – 1995 – economic and political reforms in Eastern
Europe; opposition allowed to the civil service
• Three stages of the transition period:
- 1996 – 1997 – the Civil Service Act (5th July 1995 and 18th
December 1998) enters into force; division into political and
politically neutral posts and contract employment versus
nomination, managerial posts filled by way of competition.
- The 2006 Act – introduction of the National Personnel Reserve.
- The 2008 Act – internal promotion as means of filling higher
posts., reinstatement of the position of Head of the Civil Service.
Employment in the Polish Civil Service System according
to gender as of 31st Dec 2011
Group of Institutions
Percentage of women
employed
Percentage of men
employed
Ministries
65,0 %
35,0 %
State Institutions
58,1 %
41,9 %
Regional Institutions
72,4 %
27,6 %
Administration of
Voivodships
69,0 %
31,0 %
Administrations in
Districts
75,0%
25,0 %
Institutions Aborad
32,3%
67,7 %
Total
75,2 %
24,8 %
Average monthly salary by institution (gross)
Institution
Averange monthly salary
without additional
benefits
Averange monthly salary
with additional benefits
Ministry of Foreign Affairs
7 174
7 677
Ministry of Agriculture
7 134
7 647
Ministry of Regional
Development
7 106
7 545
Ministry of Finance
6 759
7 223
Chancellery of the Prime
Minister
6 583
7 084
Ministry of Culture and
National Heritage
6 372
6 841
Ministry of Education
6 341
6 753
Ministry of Sports and
Tourism
6 176
6 558
Constitution of the RP
Article 153
1. A corps of civil servants shall operate in the organs of
government administration in order to ensure a
professional, reliable, impartial and politically neutral
discharge of State’s obligations.
2. The Prime Minister shall be the superior of such corps of
civil servants.
Civil Service corps members - rights and duties
civil service employee
civil servant
Ban on the public manifest of political beliefs
Ban on participating in strikes and actions of protest, which interfere with
functioning of the office
Ban on performing functions within
trade unions
Ban on establishment or participating
in political parties
Ban on combining employment
in CS with self-government
councillor’s status
Career & position model
Career system
France
Germany,
Spain,
Romania,
Bulgaria
Poland
Position system
The Netherlands,
Estonia
Canada,
New Zealand,
Sweden,
Great Britain
Civil service systems
• Traditional models: career and
position, do not reflect reality
• Individualisation: to which extent
rules and practices apply to an
individual, not to the group
• Delegation/ fragmentation: level on
which strategic decisions are taken
(central, ministerial or lower)
Delegation and individualisation approaches to HR
practices
Civil service models according to individualization
and delegation/fragmentation criteria
Individualization
Centralized, performancerelated model
(the United States)
Position-based model
(Great Britain, Australia)
Delegation/
fragmentation
Career-based model
(France)
Source:own study.
Department-based model
(Poland)
Department-based Model
• Niska mobilnosc horyzontalna
• Zroznicowanie pensji w ministerstwach
(porownanie
ministerstwa
kultury
i
finansow)
Challeges and difficulties
• Change of mentality and habits
• Lack of sufficient financial resources
• High influence of political pressure groups
particularly in local administration
• Fragmentation of Public Administration – a need
for the whole government approach
• Tension between the long-term and short-term
perspectives
• Strengthening the civil service & ethical behaviour
Challenges for Training in Poland
• PA programmes are within faculties of Law
and Administration
• Programs are law oriented, not management
oriented
• Not to petrify traditional model of bureacracy
• ‘Unlearning’ of old values and behaviour and
learning new set of values and behaviour
18
Subject of Training:
• Skills, not academic knowledge
• Managerial skills, coordination, cooperation, consensus
building
• Ledership, leading others, taking risks, achieving results,
organisational goals, how to implement change
• Written and oral communication, how to write
governmental papers
• Teamwork, persuade others, inclusiveness, not individual
interests
• Maintaining core values, client/citizen orientation, focus
on weak part of society, ethics, empathy
Employment in public administration in Poland
1999
Public administration
2000
2005
2006
2007
2008
2009
307
315.3
367.7
371
379.8
387.7
428.3
148
135.8
164.6
164.2
165.5
166.7
182.7
159
178.7
202.2
206.0
213.5
220.1
244.7
52
56
55
55
56
57
57
(overall)
Governmental and state
administration
Administration
on other
tiers
% share of employment in
on non-central tiers
Accountability, Corruption and Political
Neutrality
2005
2006
2007
2008
2009
2010
Ranking 70
61
61
58
49
41
Index
3.4
3.7
4.2
4,6
5,0
5,3
of 159
163
180
180
180
178
No.
states
The Role of the Civil Servants in the
Presidency
• The challenges of the Polish public
administration:
- efficiency of action,
- system for information exchange and
the circulation of documents,
- transparency of public administration,
- a professional policymaking process.
Female employment in civil service – country comparison