presentation by dr salvador parrado, professor of public management at the spanish distance learning...
Upload: support-for-improvement-in-governance-and-management-sigma-oecd
Post on 06-Jul-2015
156 views
DESCRIPTION
Dr. Salvador Parrado makes a presentation about the main findings of the comparative study "Civil Service Professionalisation in the European Eastern Neighbourhood"TRANSCRIPT
© OECD
A j
oin
t i
nit
iati
ve o
f th
e O
EC
D a
nd
th
e E
uro
pean
Un
ion
,
pri
nc
ipall
y f
ina
nced
by t
he
EU
CIVIL SERVICE PROFESSIONALISATION IN THE EUROPEAN EASTERN
NEIGHBOURHOOD
Salvador Parrado
Spanish Distance Learning University (Madrid) and Hertie School of Governance (Berlin)
Tbilisi, 4-5 November 2014
A j
oin
t i
nit
iati
ve o
f th
e O
EC
D a
nd
th
e E
uro
pean
Un
ion
,
pri
nc
ipall
y f
ina
nced
by t
he
EU
Contents
1. Objective and methodology of the study
2. Size and scope of the civil service
3. Role and challenges of the Civil Service Central Unit
4. The use of merit in the career of civil servants
5. The remuneration system
6. Challenges to professional development
7. The promotion of integrity
8. Conclusions and priority areas
1
A j
oin
t i
nit
iati
ve o
f th
e O
EC
D a
nd
th
e E
uro
pean
Un
ion
,
pri
nc
ipall
y f
ina
nced
by t
he
EU
1 – Objective and methodology of the study
• Analysis of professionalization of the civil service in Armenia, Azerbaijan, Georgia, Moldova and Ukraine.
• Assessment based upon:
Self-assessment of public authorities (5 answers)
Assessment by an NGO representative (only Ukraine)
Assessment by an EU delegation representative (only Georgia)
• Differences from other SIGMA reviews
2
Objective and self-assessment
A j
oin
t i
nit
iati
ve o
f th
e O
EC
D a
nd
th
e E
uro
pean
Un
ion
,
pri
nc
ipall
y f
ina
nced
by t
he
EU
• The fieldwork: between the 4th of June and the 7th of July of 2014.
• 58 survey questions (with subquestions)
• 38 performance indicators (PI) / Response rate
3
PI (% of total requests)
Armenia 44.7
Azerbaijan 42.1
Georgia 23.7
Moldova 57.9
Ukraine 7.9
Performance Indicators as percentage of total requests
1 – Objective and methodology of the study
Quantitative Performance Indicators
A j
oin
t i
nit
iati
ve o
f th
e O
EC
D a
nd
th
e E
uro
pean
Un
ion
,
pri
nc
ipall
y f
ina
nced
by t
he
EU
Size
4
2.9 2.5
53.556
12.3
20.3
25.9
5
26
13.3
0
4
8
12
16
20
24
28
32
36
40
44
48
52
56
60
Armenia Azerbaijan Georgia Moldova Ukraine
Civil Service as percentage of Public sector employment
Public sector employment as percentage of Total employment
… déficit of civil servants in some countries…
2 – Size and scope of the civil service
A j
oin
t i
nit
iati
ve o
f th
e O
EC
D a
nd
th
e E
uro
pean
Un
ion
,
pri
nc
ipall
y f
ina
nced
by t
he
EU
Some areas are not covered or inspired by the civil service law: (local officials, police forces, for instance).
An agency ethos of the civil servant dominates over a cohesive go-anywhere group
A senior civil group (except for Moldova) interacting with political executives and acting as cohesive corp of a fragmented central administration is lacking
Processes to define which civil service positions require special protection are unclear and this entails
• A problematic definition of lower boundaries with support staff
• Blurred upper boundaries, allowing for high number of discretionary appointments in some systems
5… it is unclear who is a civil servant and why is specially protected…
Main challenges of the scope
2 – Size and scope of the civil service
A j
oin
t i
nit
iati
ve o
f th
e O
EC
D a
nd
th
e E
uro
pean
Un
ion
,
pri
nc
ipall
y f
ina
nced
by t
he
EU
6
0.97
0.10.02 0.04 0.03
0
0.2
0.4
0.6
0.8
1
1.2
Ratio per 100 civil servants
In the specialised literature, 1 HR civil servant per 100 employees is onestandard, but the level of functions varies among countries
Staff in the Civil Service Central Unit
3 – Role and challenges of the Civil Service Central Unit
A j
oin
t i
nit
iati
ve o
f th
e O
EC
D a
nd
th
e E
uro
pean
Un
ion
,
pri
nc
ipall
y f
ina
nced
by t
he
EU
7
The central unit has the capacity to adequately coordinate up to .….. of the main functions as established in the civil
service law
Trend
A quarter Half Three quarters
All
Armenia →Azerbaijan ↑
Georgia ↑Moldova ↑Ukraine ↓
Source: Self-reported, country authorities.
…they perform a considerable number of functions but…
Performance
3 – Role and challenges of the Civil Service Central Unit
A j
oin
t i
nit
iati
ve o
f th
e O
EC
D a
nd
th
e E
uro
pean
Un
ion
,
pri
nc
ipall
y f
ina
nced
by t
he
EU
8
• Focus on strategy is not systematic, rather punctual.
• There is either excess of micro-management in some
countries or lack of monitoring in other countries.
• HR information systems are infra-utilized for strategic
steering
…strategic function can be enhanced through control of information too…
Challenges
3 – Role and challenges of the Civil Service Central Unit
A j
oin
t i
nit
iati
ve o
f th
e O
EC
D a
nd
th
e E
uro
pean
Un
ion
,
pri
nc
ipall
y f
ina
nced
by t
he
EU
9
• Merit based recruitment is only applied to a small proportion of civil servants because…• Senior positions (mostly) and promotions (always)
are exempted from competition
• In some countries, government influences negatively on recruitment.
• Average number of candidates per vacancy is small
…strategic function can be enhanced through control of information too…
Main challenges of recruitment
4 – The use of merit in the career of civil servants
A j
oin
t i
nit
iati
ve o
f th
e O
EC
D a
nd
th
e E
uro
pean
Un
ion
,
pri
nc
ipall
y f
ina
nced
by t
he
EU
10
5.6
3.1
45.4
46.4
0 20 40 60 80 100
Armenia
Azerbaijan
Moldova
Ukraine
Low % of vacancies filled with external competition *
Use of external competition
4 – The use of merit in the career of civil servants
* Georgia: No data
A j
oin
t i
nit
iati
ve o
f th
e O
EC
D a
nd
th
e E
uro
pean
Un
ion
,
pri
nc
ipall
y f
ina
nced
by t
he
EU
11
1 2 3 4 5
Hardly anyone
Up to a quarter
Up to half Up to three
quarters
More than three
quarters Armenia *
Azerbaijan *
Georgia
Moldova **
Ukraine *
To what extent are civil servants really employed on merit and open
competition?
After the last change of government, what proportion of civil service vacancies were not staffed based on merit?
Source: Self-reported, country authorities.
Merit based recruitment is not widespread and entails additional problems…
Competition, and after a government change
4 – The use of merit in the career of civil servants
A j
oin
t i
nit
iati
ve o
f th
e O
EC
D a
nd
th
e E
uro
pean
Un
ion
,
pri
nc
ipall
y f
ina
nced
by t
he
EU
12
5.4
4.2
53
2.7
0 10 20 30 40 50 60
Armenia
Azerbaijan
Georgia
Moldova
Ukraine
Low Average number of candidates per vacancy
Candidates per vacancy
4 – The use of merit in the career of civil servants
A j
oin
t i
nit
iati
ve o
f th
e O
EC
D a
nd
th
e E
uro
pean
Un
ion
,
pri
nc
ipall
y f
ina
nced
by t
he
EU
• Reorganization and abolition of agencies lead to dismissals – specially after a change of government in some countries.
• In one system, government exerts pressure to request voluntary dismissals.
13
Challenges to the termination of employment
4 – The use of merit in the career of civil servants
A j
oin
t i
nit
iati
ve o
f th
e O
EC
D a
nd
th
e E
uro
pean
Un
ion
,
pri
nc
ipall
y f
ina
nced
by t
he
EU • Classification systems do not ensure equal
“value” for similar positions in differentorganizations.
• Public sector salary is less competitive than theprivate sector one.
• Bonuses are discretionarily granted
14
Challenges
5 – The Remuneration system
A j
oin
t i
nit
iati
ve o
f th
e O
EC
D a
nd
th
e E
uro
pean
Un
ion
,
pri
nc
ipall
y f
ina
nced
by t
he
EU
• Planning and systematic assessment of training needs of organizations and civil servants is hardly performed.
• The link between training and performance is absent.
• Performance appraisal, when practiced, does not lead to influence other HR processes like promotions, and payment of bonuses.
15The goals of performance appraisal and training are unclear.
Challenges of training and performance appraisal
6 – The Professional development
A j
oin
t i
nit
iati
ve o
f th
e O
EC
D a
nd
th
e E
uro
pean
Un
ion
,
pri
nc
ipall
y f
ina
nced
by t
he
EU
16
1 2 3 4 5
It does not exist /Hardly anyone
Up to a quarter
Up to half
Up to three
quarters
More than three
quarters
Trend
Armenia ↑
Azerbaijan * ↑
Georgia →
Moldova ↑
Ukraine →
Source: Self-reported, country authorities.
* In the phase of implementation
For what proportion of civil servants is the performance appraisal implemented (i.e. it is objectively applied and has consequences for civil servants?
Coverage of performance appraisal
6 – The Professional development
A j
oin
t i
nit
iati
ve o
f th
e O
EC
D a
nd
th
e E
uro
pean
Un
ion
,
pri
nc
ipall
y f
ina
nced
by t
he
EU
17
It does not exist /Hardly
anyone
Low - Up to a quarter
Medium - Up to half
High- Up to three
quarters
Very High -More than
three quarters
Armenia
Azerbaijan
Georgia
Moldova
Ukraine
If there is a general code of ethics, for what proportion of civil servants is it adequately implemented (i.e. there is a code of ethics adopted by the institution and it is enforced with civil servants obeying it)?
Source: Self-reported, country authorities.
Coverage of the code of ethics
7 – The Promotion of Integrity
A j
oin
t i
nit
iati
ve o
f th
e O
EC
D a
nd
th
e E
uro
pean
Un
ion
,
pri
nc
ipall
y f
ina
nced
by t
he
EU
18
1 2 3 4 5Got far worse
Got a bit worse
Not changedImproved a
bitImproved
considerablyArmenia
AzerbaijanGeorgiaMoldovaUkraine
In the last four years, the application of the measures for promoting integrity
and preventing corruption has...
Source: Self-reported, country authorities.
Although there is some improvement, the impact is low…
Evolution
7 – The Promotion of Integrity
A j
oin
t i
nit
iati
ve o
f th
e O
EC
D a
nd
th
e E
uro
pean
Un
ion
,
pri
nc
ipall
y f
ina
nced
by t
he
EU
19
94
127
55
102
144
0 50 100 150 200
Armenia
Azerbaijan
Georgia
Moldova
Ukraine
Ranking out of 177 countries
0 20 40 60
Armenia
Azerbaijan
Georgia
Moldova
Ukraine
Score
(0 highly corrupt and 100 highly clean)
Source: Corruption Perception Index from Transparency International (2013)
High perception of corruption
7 – The Promotion of Integrity
A j
oin
t i
nit
iati
ve o
f th
e O
EC
D a
nd
th
e E
uro
pean
Un
ion
,
pri
nc
ipall
y f
ina
nced
by t
he
EU
In a few years, since the approval of the Civil Service Law, progress has been achieved but, challenges remain…
Narrow scope of the civil service
Still weak involvement of Civil Service Unit in strategicdevelopment
Absence of a senior civil service that gives cohesionand guidance
Use of merit in the career of civil servants
Fairness, transparency and sufficiency of remunerationpolicy
Professional development of civil servants
Fight against corruption20
Conclusions
8 – Conclusions and priority areas
A j
oin
t i
nit
iati
ve o
f th
e O
EC
D a
nd
th
e E
uro
pean
Un
ion
,
pri
nc
ipall
y f
ina
nced
by t
he
EU
• The definition and scope of civil service has to improve and be clearly applied: regarding upper and lower boundaries (AM, AZ, GE, UA)
• Political appointments should be reduced and a senior managerial group should be created (AM, AZ, GE, UA)
• Empowerment of HR central unit is required through resources and use of information systems (ALL, except for AM in resources)
• Competition should be applied also to promotions and discretionary practices in recruitment should be minimized (AM, AZ, MD, UA)
• Gender balance should be introduced as a principle. (ALL)
• A plan to secure better remuneration of civil servants is required, with likely impact on the size of public sector employment (AM, AZ, GE, UA)
21
Priority areas (I)
8 – Conclusions and priority areas
A j
oin
t i
nit
iati
ve o
f th
e O
EC
D a
nd
th
e E
uro
pean
Un
ion
,
pri
nc
ipall
y f
ina
nced
by t
he
EU
• The proportion and discretion of bonuses in the whole remuneration scheme should be reduced (AM, AZ, GE, UA)
• Job classification should be further improved and ensure its application to have a fairer remuneration system (AM AZ GE UA)
• Performance appraisal should be implemented and linked to other HR processes in an objective matter (AM AZ GE UA)
• Attestation should be abolished (AM GE)
• Codes of ethics should be adopted (where it does not exist) and further disseminated also among the population (ALL)
• A risk-based approach should be used when promoting ethical behavior and avoiding corruption. (ALL)
22
Priority areas (II)
8 – Conclusions and priority areas