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 PresentationContent of the Presentation• Trends in public administration
• Historical background
• Characteristics of the Polish system of civil service
• Forces behind reform,
successes & failures
Pressure on statePressure on state
European Union
State Transitional
Local and regional authorities
globalisation
integration
fragmentationOrganisations
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 backgroundHistorical background of the Civil Serviceof 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)
Constitution of the RPConstitution of the RP
Article 153Article 153
1. A corps of civil servants shall operate in the organs of 1. A corps of civil servants shall operate in the organs of government administration in order to ensure a government administration in order to ensure a professional, reliable, impartial and politically neutral professional, reliable, impartial and politically neutral discharge of State’s obligations.discharge of State’s obligations.
2.2. The Prime Minister shall be the superior of such corps of The Prime Minister shall be the superior of such corps of civil servantscivil servants..
Civil Service corps members Civil Service corps members - rights and duties- rights and duties
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 participatingin political parties
Ban on combining employmentin CS with self-government
councillor’s status
civil service employee civil servant
Career & position model Career & position model Career system Position system
France Poland The Netherlands, Canada,
Germany, Estonia New Zealand, Spain, Sweden, Romania, Great Britain Bulgaria
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
Source:own study.
Position-based model(Great Britain, Australia)
Department-based model(Poland)Career-based model
(France)
Centralized, performance-related model
(the United States)
Delegation/
fragmentation
Individualization
Department-based Model
• Niska mobilnosc horyzontalna
• Zroznicowanie pensji w ministerstwach (porownanie ministerstwa kultury i finansow)
Challeges and dChalleges and difficultiesifficulties• 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
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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
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 2000 2005 2006 2007 2008 2009
Public administration
(overall)
307 315.3 367.7 371 379.8 387.7 428.3
Governmental and state
administration
148 135.8 164.6 164.2 165.5 166.7 182.7
Administration on other
tiers
159 178.7 202.2 206.0 213.5 220.1 244.7
% share of employment in
on non-central tiers
52 56 55 55 56 57 57
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
No. of
states
159 163 180 180 180 178
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