Career Evaluation

ERPA REAP

EUROPEAN REVIEW OF PUBLIC ACTION ISSUE 1 – MAY 2010 CASE STUDY PUBLIC MANAGEMENT IN EUROPE

CAREER EVALUATION

STATUTE MOBILITY

Interview with Italian Minister of Public Administration and Innovation « European changes » Centre nationalde lafonctionpubliqueterritoriale des agents et des collectivités territorialesUne expertise formation lacarrière descadres supérieurs Dynamiser etdesagents l’évolutiondescollectivitésterritoriales Anticiper développevostalents La formation toutaulongdelavie Former

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EUROPA ASSOCIATION Based in : Faculty of Law and Economics in Limoges, 32 Turgot Str, 87031 Limoges Cedex General delegation : 11 Albert-Piche Str, p. 6 64000 Pau European Changes Secretariat-General : 88 Pont Saint-Martia Strl, 87000 Limoges Website : www.europaong.org Editorial staff and subscription Tel.

+33 5 59 27 46 11 CAREER email : [email protected] EVALUATION

Editor : Robert SAVY, EUROPA president STATUTE Editorial Staff MOBILITY Editor-in-chief : Giuseppe BETTONI, EUROPA first vice- president Deputy editor-in-chief : Christophe BONNOTTE, EUROPA deputy secretary general, Clotilde DEFFIGIER, , member of EUROPA scientific council Editorial secretariat : Michel SENIMON, EUROPA executive officer Contributors to this issue : Jean-Luc BODIGUEL, first p. 18 vice-president of EUROPA scientific council ; Anne p. 58 AZAM-PRADEILLES, member of EUROPA scientific Public management: council, coordinator of English-speaking experts Sustained performance Leuven: Public action in the in EUROPA network, Bernard PERRIN, , member of heart of Europe EUROPA scientific council Belgium: Christian de VISSCHER, David RENDERS Bulgaria : Antoniy GALABOV Denmark : Naja Vucina PEDERSEN France : Pierre BAUBY, Jean-Luc BODIGUEL, Jean-Luc BOEUF, Christophe CANTON, Claire CORNET, Clotilde DEFFIGIER, Delphine ESPAGNO, Jean-Claude FILLON, Denys LAMARZELLE, Christine LEAL, Hélène E DITORIAL PAULIAT, Nadine POULET GIBOT-LECLERC, Robert SAVY Germany : Ewald EISENBERG ENCOUNTER Greece : Stella KYVELOU 6 / Encounter with Renato BRUNETTA, Italian Minister of Public Administration and Innova- Italy : Renato BRUNETTA, Giuseppe BETTONI, Pietro- tion Luigi MASTROGIUSEPPE, Gennaro TERRACCIANO Ireland : Brid QUINN Netherlands: Jan KENTER, Laurens ZWAAN NEWS Poland : Jacek CZAPUTOWICZ 8 / Administrative organisation Portugal : Vasco Nascimento COSTA 10 / Democracy and participation Romania: Marius PROFIROIU Spain : José Manuel RUANO 12 / Public services Sweden : Kerstin KOLAM 14 / Public management UK : June BURHAM 15 / Sustainable development Ukraine : Anne AZAM-PRADEILLES, Vira NANIVSKA PARTNERS OF THE EUROPEAN REVIEW OF PUBLIC PARTNERSHIP ACTION 16 / Coordination of social security systems in Europe University of Limoges – Observatory of Institutional and Juridical Changes (OMIJ)) President: Helene PAULIAT, Professor in Public Law, University of Limoges, member of the University Institute of France CASE STUDY : Public management in Europe

18 / Public management in Europe: Sustained performance ? Civil Service Mutual Insurance Company (MFP) - 22 / State reform and modernisation of administration European Social Cooperation - Development (CSED) 30 / Public management Correspondent : Christine LEAL 36 / Public officers’ training 44 / Public officers’ career path 50 / Public officers’ remuneration

PORTRAIT The opinions expressed in the magazine represent only 58 / Leuven: Public action in the heart of Europe the authors’ position

EUROPA ASSOCIATION - ISSUE 1 – MAY 2010 4 EUROPA ASSOCIATION I'Administration en Europe en I'Administration of public action. We discussed civil ser- civil discussed We action. public of years touched upon very different aspects experience,opinionstheandover have from many European countries exchange sion. The selected topics on which experts – that EUROPA contributes to this discus- Presses Universitaires de Limoges (PULIM) universitypublishinghouseby basis lar whoseregu-outcomepublishedisa on Limogesheldinevery year since1997 – means of better response. themgiving nationalpolicies,publicby helpfuldecision-makersto theinfield of variousnational practices, wishwe on beto collected information the through vice, the challenges they ser- face. public and Meanwhile, service civil in changes the on discussion unbiased an present to reasoning, academic of austerity the with trying, are We gement-oriented. mana- and scientific both is ambition Our operates. EUROPA which in phere This double patronage shows the atmos- LimousinandtheUniversity Limoges.of ofregion thebeenpartners majorhave Europe. Since its establishment, EUROPA’s work together as regards public action to in learned have – Union European the rentlyoperating somecountriesin20 of signed.benetwork The members cur- – withwhichpartnership agreements can bodies training or professional centres, research universities, their through or person in either involved practitioners officers, public incorporates It experts. EU member states. local administrations of general interest in compare the civil services and national or Itsmajor mission isto study, analyse and ticipatory status at the Council of Europe. based NGO, which in 2001 obtained a par- ( Association Europa Limousin, of region Entretiens Universitaires Reguliers pour pour Reguliers Universitaires Entretiens Presentation of Europa association EUROPA ASSOCIATION ROPEAN E It is mainly through the symposiums symposiums the through mainly is It of network permanent a is EUROPA Set1995inupwith the support theof u uropean R

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A ) is a France- a is ) c ction tion public policies, such as broader issues central to the challenges to and religions and and public services public and vice – CNFPT ( the National Centre of Territorial Civil Ser- vices at symposiumsvicesat on retirement public action public the public sector sector public the Services – One-Stop Shops in Europe in Shops One-Stop – Services Cooperation in Europe in Cooperation concerns. these of grain straight the in situated is EUROPA, by released Action, Public Public Sector in Limousin. PerformancetheEvaluationthe of of of ObservatoryRegional a as well as tices, dialogueof goodonmanagement prac- Employment in the Public Sector, an area RegionalObservatory Professionsof and was the initiator of the establishment of a it Meanwhile, services. public local and national major the of decision-makers in the public sector, where students meet singin Limoges a forum on employment sin,since 2004 EUROPA has been organi- its missions in its partner region of Limou- contact with the reality of civil service and 2005-2007). competition and regulation and competition Europe( privatepartners, including theor Council public of its for programmes research or study important implemented has It Romania…Poland, Greece, Italy, Spain, withthenational teams ofitsnetwork in partnership in daysinformation or nars semi- of organisation the to assistance ning and Competitiveness – ministerial First of all, because it is European.isbecauseall,We itFirstof of Review European the Therefore, conclusion,instay attemptInitsto in In the same vein, EUROPA has lent itslent EUROPAhasvein, same the In Good Practices in Intermunicipal Intermunicipal in Practices Good (2001). We also touched upon D e Local Civil Services in Europe in Services Civil Local (2007), or (2007), (2004), or or (2004), legationforRegional Plan- (2005),or (1999) or territorial cohesion cohesion territorial – 2007), the Inter- public services, services, public employment in in employment public officers’ officers’ public the quality of of quality the (2008). D public service service public I ACT ( Public Public ) or )

EUROPA president, government adviser (H) Robert SAVY, reconciled everywhere. and the respect for Europe’s values can be description of how the efficiency of action Review of Public Action plays a role in the Europeanpossiblenegativetrends.The the curb or prevent to action public of cohesion can be put at risk in the absence cy,public freedoms, social andterritorial rywhere there is awareness that democra- eve- However,development. of degree the to recently and specificity, national is everywhere, with differences related to alternativeno thetomarket economy: it haveacknowledged that todate there is states member All action. public needs pean project. values is a useful contribution to the their ofEuro- unitythe traditions andtheir of diversity the of both aware be rience, moreabouteach other, exchange expe- rythingenablesthatEuropeanslearn to are aware that Europe is our horizon. Eve- Moreover, because the European Union EUROPA executive officer Michel SENIMON Michel EUROPA ASSOCIATION - ISSUE 1 – MAY – 1 2010 ISSUE - ASSOCIATION EUROPA EDITORIAL

A new magazine … why ?

The “launch” of a new magazine is always tricky, particularly if it is mani- festly ambitious to be European! But still here is the European Review of Public Action – which offers an original perspective compared to its counterparts; it is launched to give a specific meaning to the existence and operations of a network functioning for over 10 years. Following its recognized scientific achievements, mostly in the form of symposiums, university exchanges, Europa Association decided that it is high time to further structure its activity, to prove to be more readable as regards its partners, to offer benefits to the administrative circles with the totality of its experience and reflections.

The gradually established network includes universities, civil servants from central or local administrations, elected officials, politicians or high-ranking officials; it was structured around several topics such as public services, civil ITORIAL service, public administration, which justifies the title of this magazine. The first part is devoted to news stories of D the public administration in the EU member states or candidate countries, in the field of local democracy, public E services, public management, sustainable development. The second part focuses on social protection - a widely discussed issue. The third part presents a case study depending on the topical news. The last part describes one 5 of Europa’s partner institutions; it can concern a research centre (which is the case in the first issue), an association, an institute, an organisation of civil servants…

The first issue is to focus on a wider range of topics, so that the different members of the association can present the discussions held in their respective countries. The topic of the public management in Europe was selected to outline current key issues, such as the recruitment of civil servants and mainly their non-replacement for budgetary reasons, their training, mobility, their professional career, remuneration, in a more scientific way, the organisation of public management… The magazine does not target to pinpoint the policy to be pursued in the field: it simply seeks to introduce public administration practices in EU member states, at a moment when Com- munity integration sometimes appears to be in a standstill, often due to lack of information and knowledge on our neighbours’ practices. Explain, raise awareness, understanding… a programme which proves to be essential for an association definitely diverse in terms of members !

Giuseppe BETTONI Hélène PAULIAT First vice president of europa President of europa scientific council Editor-in-chief

European Review of Public Action EUROPA ASSOCIATION - ISSUE 1 – MAY 2010 ENCOUNTER

Interview with Renato BRUNETTA Italy’s Minister of Public Administration and Innovation Iterviewen d by Francois MEYER

“We should change administrative culture to make it closer to the culture of the private sector”

What are the challenges to the European administrations and to the pri- What are the first measures you will modernisation of public administra- vate sector. The lack of competitiveness undertake to get involved in a concrete tion in Italy ? results partly from poor organisation of way in these efforts? structures and implicitly from poor distri- Currently public administration in bution of resources. Our priority should Staff evaluation should be the driver Italy has a dormant untapped potential, be to rectify this. Currently, dismissals of a modern public administration, with which is rather promising, though. A stu- are very few, mobility is insufficient and performance-based bonuses, satisfac- dy showed that a 10% rise in the produc- career development is rather automatic tion of citizens and the staff itself. We are tivity of the Italian public administration and gradual. We have to make efforts to definitely committed to this goal. A tota- would enable a 2-point growth of the align the public sector and the private lity of targets will be set to measure and country’s GDP. A 20% rise in the produc- sector. We’ll have to adopt a remunera- evaluate the performance of the public tivity of the public administration, in 3 to tion scale identical with or similar to the administration. To ensure transparency, 5 years, would lead to gains of over EUR one in the private sector, especially for the data on the evaluation of the indivi- 40 billion, without a negative impact on the remuneration upon appointment. dual administrations will be published on the social sphere and employment. To Meanwhile, it is essential to reinstate the the Internet, where citizens will be able unlock the potential of productivity is role of the employer in the public sector; to make proposals for improvement and conditional upon the willingness of the somebody to be held responsible for any report any irregular or unsatisfying ser- government, social partners, citizens. “failure” of the administration - just like it vice. Let’s say that this policy can improve the happens in the private sector.

RENCONTRE performance of the private sector, which is currently struggling with cumbersome 6 and unequal bureaucracy. After all, the modernisation of the Italian administra- What are the efforts required to tion will be in favour of the development ensure this modernization? of Italian society as a whole. Some examples come first to my mind. To boost creativity, innovation We should entirely reconsider the pro- duction process in administrations, in and independence of civil What are the preliminary actions to a bid to ensure savings and improve service, career development trigger this modernisation ? the satisfaction of the citizen, and the should be independent from customer. Hence, we should simplify favouritism and age. The productivity of the Italian public procedures, and provide for more res- administration is low compared to other ponsibilities. Also we have to capita- lise more on human resources and refocus our HR policy towards a more proactive and involved policy. Finally, we should change our administrative culture to make it closer to the culture of the private sector, where words such The introduction of performance-based as responsibility, independence and pro- pay should also be high on the agenda. ductivity have a concrete meaning. To The performance-based work can be a dri- We should also capitalize more make these efforts, we have to conduct ver for climbing the social ladder, as it is a on human resources. comparative studies/ benchmarks at factor for setting an example. Meanwhile, well-performing public administrations savings ensured by the administrations abroad. The analysis of this experience within their actions of modernization will help us define our own actions. We could also be used for remuneration of have already started making some of executives and civil servants. We also these efforts. We shall launch other in need to reinforce independence and the coming weeks or months. responsibility of public employees in HR administration, granting them exclusive competences in staff evaluation, pay rise

Eropeanuuropean Revieweview ooff Puublicblic Acctiontion EUROPA ASSOCIATION - ISSUE 1 – MAY 2010 ENCOUNTER

CV – IN BRIEF

Mr. Renato Brunetta was born in Venice on 26 May 1950. He is a professor in labour economics at the University of Rome Tor Vergata. On 8 May 2008 he was named Minister of Public Administration and Innovation by the XVI Legislature in the IV government of Berlusconi.

Since April 2008 he was MP of the Chamber of Deputies, elected by the constituency of Veneto II from the list of Popolo della Liberta.

From June 1999 to April 2008, he was Member of the European Parliament, elected from the list of Forza Italia and part of the EPP group, where he held the position of vice-chairperson of the Industry, Research and Energy Committee. Moreover, he was member of the mixed parliamentary delegation of EU-Croatia, the mixed parliamentary delegation of EU-Turkey and the delegation of relations with the People’s Republic of China.

He is responsible for Forza Italia’s sector programme and in 2007 he became national deputy coordinator.

He is also a columnist for newspapers Il Sole 24 ore and Il Giornale. He is the author of a number of scientific publications on labour economics and industrial relations, including: Il modello Ita- lia, (The Italian Model) (1991), Economics for the new Europe, (1991), D isoccupazione, isteresi e irreversibilita (Unemployment, Hysteresis and ENCOUNTER Irreversibility) (1992), La fine della societa dei salariati (The End of the Society of Salaries) (1994), Sud (South) (1995), Economia del lavoro (Labour 7 Economics) (1999).

Founder and director of Labour: Reviews of Labour Economics and Industrial Relations, published by Blackwell Publishing Ltd. Together with Vittorio Feltri, he was an editor of the collection Manuale di Conversazione Politica (Manual of Political Conversation), published by Libero and remuneration of productivity and tners which are present in the area (e.g. and Free Foundation and the collection Manua- li di Politica Tascabile (Pocket Political Manuals) mobility. To boost creativity, innovation post offices, banks). released by Il Giornale and Free Foundation. and independence of civil service, career development should be independent In the 1980s and 1990s, he was an economic from favoritism and age. adviser to the governments of Craxi, Amato and What is the role of new technology, Ciampi. In 2003-2006, he was an economic advi- internet, in the modernisation process? ser to Prime Minister Berlusconi. It will be central as we have to push From 1985 to 1989, he held the position of vice- Within the modernization plan, you ahead towards a dematerialised public president of the labour and social affairs com- are also planning actions in public pro- administration. We need full sharing and mittee of the OECD (Paris). From 1983 to 1987, he perty management. What are they? interoperability of databases of central was responsible at the Ministry of Labour for all and local administrations. Public admi- employment strategies and income policy. In nistration has to be able to respond as a 1989, he set up EALE (the European Association We have to ensure the optimum use of of Labour Economists), and he became its first single entity in the dialogue wtih citizens public real estate. Public buildings have chairman. and businesses. Citizens and businesses to house more operations than they do won’t have to give their data several now in order to group together related In relation to his career, he was awarded a number times as they will be already available of prizes: in 1988, the Saint Vincent Prize of Eco- services for the benefit of customers, at every public administration. Further- nomics; in 1992, the Tarantelli Prize for best work and for the purpose of sharing available more, call centres will help citizens and on labour economics; in 1994, the Scanno Prize human resources. The state has to divest businesses in the administrative process. for best work on industrial relations; in 2000, the Rodolfo Valentino International Award for econo- of its residual parts of unused or unde- mics, finance and communication. rused government buildings. Finally, we have to ensure synergies with other par-

European Review of Public Action EUROPA ASSOCIATION - ISSUE 1 – MAY 2010 8 NEWS organisation ny’s administrative and territorial the different parts of the whole. competitionamongenhanced by balancingsystem, replacedwillbe ralsolidarity, applied viafinanciala to what extent the principle of fede- its own finance. The future will showshould bear more responsibility for topublic finance reform. Each level The second phase will be dedicated cise on its own. eager to follow England’s example parts of the United Kingdom are not circles. For the time being, the other 2009, against the will of the medical trictsareplanning opento150for London’spolyclinic. dis-one least at create to obliged is England in days. Each of the 152 ‘health willdistricts’ be open to everybody accesstohealthcare12 these–hours/6 clinics ventions. Theaim isto improve the chological), and minor surgicalpsy- (including services inter-diagnosis some also care,but primary usual up care centres, offering notthe only the the access to which service, depends on health the GP, national the Sixty year after the establishment of petences, which each obtained significant legislativereturn,the Incom- 40%.to 60% the number of legislative areas in whichthe 2006, in launched federalism, Withinthemain reform Germanof the SNAPSHOTS OFA ROPEAN E u uropean Länder D Bundesrat, Bundesrat, e velopments in Germa-

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and controversial social affairs, represent 70% in mainlypays, subsidiesit and contributions the get: strain on its operating bud- a manoeuvre.putsforThis room limited only it ted tencestowards ithasgran- auxiliary institution. an becoming increasingly the administrative map. of shake-up the with pear disap-todoomed arethey namely but municipalities, small inareas, rural in only nant.somehasinfluenceIt structures tend to be domi- intermunicipal the and regionsposition.The rable favou- a in not is it where a environment, competitive in operates It agenda. the on being reform any has without obsolete, become system electoral its district, administrative an taneouslyauthorityan and identity.simul-Beingits of erosion the to leads which territory, a than perimeter survival its becomes questionable. criticism, ten years”. Amid increasing in level departmental the removing by bodies cipal the of regionsintermuni-theand “strengthening report, which recommends the spotlight with the Attali The transfer of compe- of transfer The is department The a of more become has It outdatedSeemingly – I under came issue The The future of the department pear or to change government does not seem the reasons, technical and and regions. structures intermunicipal between competences its of redistribution the to lead will authority ritorial ter- a as disappearance Its region. the privileges and department the on based extentlesser a to is reform state The prefect. regional for the benefit of those of a limited now areprefect tal The powers of a departmen- authority. territorial a as it is no longer justified to keep but an auxiliary structure, it nothing is it As disappear. mised. future seems to be compro- Its institution. auxiliary an but task, specific a with ty authori- an longer no is It forms.itsmentpolicyallin invest- the on weighing of transfer of competences, effect the under rigidified for access to social benefits. conditions the nor service, of level the neither mines deter- it example, for ned, concer- affairs are socialas far As action. for room ted limi- only has it petences Meanwhile, due to its com- budget. the of one-third those linked to public roads, expenses; operating its of However, for political political for However, A first option disap- would be to to stined – II Thus, its spending was was spending its Thus, D

e Associate Professor inPublic Law –University ofLimoges Faculty ofLaw andEconomics ofLimoges–OMIJ is already clearly outlined future its but yet, decided intermunicipal structures. and regions to transferred ticular, as the others will be tences,social par-affairs in someofitscurrent compe- only cover may formation ment autonomy. This trans- manage- larger ensures it as service, decentralised a better adapted than that of seems concept This cies. poli- national of body tive execu- an into turned has a into it asdepartmental agency, transformation being the natural winner. authorities –with the region local of hierarchy a of tion introduc- the include may proposal this of follow-up the and clause, petences reviewthegeneralof com- a recommendsreport bert to its degradation. The Lam- contribute to likely it is and affect will authorities, public the by required as themselves, authorities localthe among rities,and autho- local and central of competencesthe cationof clarifi- a place, first the In forms. several take could which change, its involve least not in the short term. to opt for this possibility, at Its fate has not been been not has fate Its its is option Another would option other The Nadine POULET . EUROPA ASSOCIATION - ISSUE 1 – MAY – 1 2010 ISSUE - ASSOCIATION EUROPA SNAPSHOTS OF ADMINISTRATIVE ORGANISATION

Macro-budgetary management of local finance Outcome of a report – Jean-François HUSSON, Secretary-General of the Inter-University Centre of Continuing Education (CIFoP), member of EUROPA scientific council, Research Fellow at the University of Liege between motivation and continuity Marie-Christine STECKEL, Associate Professor at the University of Limoges, Faculty of Law and Economics of in Bulgaria Limoges – OMIJ, member of EUROPA scientific council According to the 2007 annual report of the Ministry of Public Administration The macro-budgeta- cation of the SEC95 national instrument panels, etc). and Administrative Reform, 45.7% of ry management of local accounting standards at the the administrative structures have finance, i.e. its relation with local level. To a large extent launched motivation mechanisms tar- national (or regional and this may restrain the invest- Reflections to be retained geting young employees, to give them federal in federal states) ment policy of municipali- Having said that, macro- a clear vision of their professional deve- public finance, is a question ties, as the Belgian example budgetary management lopment. At the same time, in the last whose importance was shows. cannot be separated from three years, senior positions have been highlighted by European the traditional but still fun- increasingly held by officials aged over budgetary rules, first in the Another important issue damental debates related 60, while the number of younger offi- Treaty of Maastricht, and is “the culture of perfor- to fiscal autonomy of local cials has fallen and stabilised at around then in the Growth and Sta- mance”, which takes up a authorities, horizontal and 12.1%. This trend seems worrying in bility Pact. new dimension with the vertical balancing mecha- relation to the efficiency of motivation, challenges to be faced, nisms, and to the debate as well as for the prospects of a gene- namely the knowledge eco- on budgetary constraints of rational replacement, desirable for the General context nomy and the reorganisa- municipalities and the prio- Bulgarian public administration. The main finding is tion of administration. rities of this level of authori- simple: the local authority in terms of public policies Antoniy GALABOV ties in EU-27 are an impor- and thus, public spending.

tant public sector player; Operating system NEWS therefore, it is crucial to The budgetary balance open a dialogue based on of the public administration Reshaping and relocation 9 the triptych of Resources/ results from its sub-sectors – in Ireland in 2008 Expenses/Deficit, deve- the central administration, At central level, the main change Based on contributions of loping the cooperation social security, federated concerns the relocation of 2,000 civil Michel Bouvier (GERFIP, mechanisms between the entities and local authorities. FONDAFIP, Paris 1), Arnaud servants to 33 units in the country; state -- or the federated In Belgium, the mechanisms Dessoy (Dexia), Olivier 6,000 employees should leave Dublin entities, if applicable -- and for budget cooperation Dubois (Union of Cities and by 2011. At regional level, a transport local authorities. However, between the federal authori- Municipalities of the Wal- authority was set up for the Greater the analysis of the local ty and the federated entities lonia), Dominique Hoorens Dublin Area, which coordinates the finance regulations in the (communities and regions) (Dexia-CLF), Jean-Francois infrastructure and the public transport EU-27 member states, leads take into account the local Husson (CIFoP), Johan Ide services. As for the whole island, the to the conclusion that there authorities, although they (ABB – Flemish region), Ber- North/South Ministerial Council conti- is certain generalisation of are not represented in spe- nard Jurion (University of nues its work through its executive the regulatory system, cha- cific institutions such as the Liege), Claude Parmentier bodies (waterways, food safety, tou- racterised by concentration High Council of Finance. (CRAC Walloon Region), rism, trade) and joint actions (infrastruc- of rule-setting, monopoly Namely regions, the regu- Marie-Christine Steckel (Uni- ture, agriculture, cross-border mobility). over strategy drafting, and latory authority, represent versity of Limoges), Luc-Alain The two territorial administrations pur- control over local finance local authorities before the Vervisch (KALYPS) during sue their collaboration in four areas: management by the state. federal power, and coo- the 5th Conference on Local communities, customers, administra- However, recognition, dia- perate with local authori- Finance, organised in 2008 tion and benefits. logue and consolidation of ties in order to harmonize in Brussels by the CIFoP, with the support of Dexia and the local financial autonomy individual decisions (bud- Brid QUINN contribute to the emer- get approval or municipal Union of Cities and Munici- gence of a real cooperation. management plans) with palities of the Wallonia. Seve- ral of these contributions are the general framework. To available for download on In addition to this comes do this, they rely on specific the website http://www. the impact of a priori tech- tools (budgetary and finan- cifop.be. nical questions, as the cial planning tools, super- possible effect of the appli- vision, management plans,

European Review of Public Action EUROPA ASSOCIATION - ISSUE 1 – MAY 2010 10 NEWS size of the budgets in question. has been toned down by the However,reducedthe success ofthesystem the right to participate in their work. dent of the district aged over 14 has roads,cultural policies… Every resi- inthe budgetary discussions: public king groups for every issue included rhoods in Rome’s district set up wor- assembliesseventheofneighbou- tion in budgetary management. The citizensviatheir effective participa- between the territorialrelation a authority build to will and the of sion Participatory budgeting is an expres- particular, set an example. The city of Rome, and its IX district in with Italian participatory democracy. The The bility with citizens and to favour accounta- manent channels of communication Theauthorities hopecreateto per- specified in the budgetary forecasts. problems and the search of to solutions,involve seeks citizens in defining council the city’s local The jects. participatorybudgetingtiouspro- to implement one of the most ambi- with 377,000 inhabitants, city Spanish has startedninth-largest the ria, The city of Las Palmas de Gran Cana- democracyin Spain Italy andparticipatory democracy in SNAPSHOTS OF ROPEAN E u uropean bilancio partecipato bilancio .

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R eview e view

Giuseppe BETTONI oof f P

P uublic blic José RUANO D is in line line in is EMOCRACY AN A A c ction tion procedure restricted, democratic I-Inevitable, but still very seem as a kind of illusion. can it that extent an such by its limited application, to time it is called into question same the at but decide, to it can offer citizens the right isparticularly interesting, as publicauthority.theIt and official elected the citizen, the between distance the sentation,itshould shorten repre- of system the with modern democracies. of element Along inevitable an ment (Article 3) defines it as Charter of Local Self-Govern- popularone.TheEuropean most the case any in and level, local at democracy preadinstruments directof wides- most the among ly certain- is referendum The In most states it is shared, shared, is it states most In sivelypopulation.thefrom morerarely, itcomes exclu- ordeliberative assembly, or power executive the cials, reserved to local elected offi- tation. restrictslytheirimplemen- homogenousand rigorous- theregime ofapplication is such mechanisms. However,have states European ral, gene- in Therefore, dums’. referen- local regulating provisions the improve or ‘introduce to mem- states ber invited of Ministers Committee Europe’s The initiative may be be may initiative The of Council the 2001, In D PARTICIPATION The local referendum II-Really limited impact palities in particular, appa-particular,in palities authorities,suchmunici-as territorial that the conclusion to lead referendum concerninglocaltheuseof is very limited understandablethatitsuse voters have cast a ballot. It is at least half of the registered adoptedifproposal onlyis throughpetition,a andthe only initiative of right the timethelimits, votershave trictive. In France, apart from organisation can be very res- the status of elected officials. excludesbudget, taxes and it therefore authority; sing competences of the organi- to questions relevant for the is not usurped. organisationof referendum the whether question the Belgium or Spain. This raises numerousstates,including consultativea ofis valuein decision.a Thereferendum may lead to an opinion or to referendumisconcerned, it France). demand (Belgium, Portugal, the satisfy to obliged not assemblyislocal the times 10 some- However, 25%. and between general in voters to support a demand, of percentage minimum a andtheregulations require Thescarce statistical data In addition, the rules for for rules the addition, In The referendum is limited As far as the nature of the A ssociate Professor inPublic Law –University ofLimoges . Faculty ofLaw andEconomics ofLimoges–OMIJ conferences. consensus committees, or zens’ juries, citizens’ citi- councils websites, interactive deliberativemoresystems: thefuture belongs otherto Perhaps needed. be may levels higher at as debates well as flexible, more becometoneed rulesmay not necessarily a panacea; its level, like in Spain. this at it use not do tures available, struc-iftheeven and competences, local of part largest the hold to palities,although they tend intermunici- offered to not is mechanism the general nism in the 1980s. introductionmecha-theof localreferendums since the has organised around 1,200 On the other hand, Germany municipalities resorted to it. 453 ofoutFinland, 26 only in1999 Thus,to1991from derablydiscourages itsuse. responsibility,whichconsi- democratic involves and policies between bridge a establishes it cost, and ty purpose of political claims. the for used is mechanism the where France, in like sourcealsobeadiscord, of rently rarely resort to it. It can The local referendum is is referendum local The in thatnoting worth is It complexi- its from Apart Clotilde D EFFIGIER EUROPA ASSOCIATION - ISSUE 1 – MAY – 1 2010 ISSUE - ASSOCIATION EUROPA SNAPSHOTS OF DEMOCRACY AND PARTICIPATION

Efforts to reinforce citizen participation in Danish public sector Belgium: a state on borrowed time ?

Naja Vucina PEDERSEN Department of Society and Globalisation – Roskilde University Since the last federal elections in June 2007, Belgium has been in a breath- Citizen involvement supported by the nationa- of transparency and exces- holding situation: will the federal through networking list party Danske Folkeparti sive red tape, due to the government succeed in a new state -- launched the local-level enlargement of municipa- reform, thus avoiding a separation restructuring of the Danish lities. Moreover, it has been between the north and the south of Traditionally, the Danish public sector. The Struc- suggested that, instead of the country? The gap in the positions public sector is organised tural Reform Plan (SRP), effectively promoting bot- of the Francophone and the Flemish on the principle of hierar- which entered into force tom-up democracy, the negotiators is so big, that this is far chical decentralisation. The on 1 January 2007, reduced impact of the SRP will be from simple. The issue that brings Parliament defines the fra- the number of regions to counterproductive, enhan- together all the opposition is that of mework within which local 5, while the total number cing centralisation and lea- the split of the (bilingual) constituen- authorities have the powers of municipalities was cut ding to a situation where cy of Brussels-Halle-Vilvoorde, more to delegate their responsi- from 275 to 98, thus raising the room for manoeuvre commonly known as BHV. The Fle- bilities to local administra- the number of their popu- of municipalities will be mish parties, supporters of the lin- tive institutions, which, in lation. Each municipality constrained by the central guistic frontier idea, vociferously call turn, delegate them to local is also supposed to be res- government more than for that split, on the basis of a ruling municipalities or external ponsible for as many tasks ever. of the Court of Arbitration. In return, players. as possible, to ensure that the Francophone parties request local tasks are dealt with at compensations, namely expanding local level. the boundaries of the Brussels-Capi-

tal Region – the country’s third region NEWS In the last ten years there along with Wallonia and Flanders – have been attempts to Bibliographie: wholly enclaved in the Flemish terri- 11 structure the public sector One of the SRP objectives Agger, Annika & Lögren, tory. However, the Flemish are set to around networks and par- was to strengthen demo- Karl (2008) New Models of prevent at any cost the insertion of a tnerships, in order to meet cracy by increasing the Local Democracy – Do Dif- ‘passage’ between the Walloon and demand for enhanced citi- domains of responsibility of ferent Institutional Settings Brussels regions, which would rein- zen participation. In parti- local and semi-local autho- Impinge on Different Norma- force the Francophone axis in the cular, this demand calls for rities, thus involving citi- tive Criteria?, Department of Belgian state. Now negotiations are collaboration between local zens in a more active way, Society and Globalisation, on the agenda, under the leadership authorities, private sector encouraging them to take Roskilde University, Den- of new Prime Minister Herman Van and civil society. The latest part in the decision-making mark. Rompuy (61, Flemish Christian and most ambitious effort process. This implies the Democrat), to whom the king assig- is the implementation of organisation of meetings Fokus-Nyt (2003) Kommu- ned the sensitive task to defuse the Structural Reform Plan and debates at local level, nestrukturen i et historisk lys, explosive issues at community level, (Strukturreformen), aimed encouraging discussion in numb. 24, December, FOKUS, while at the same time implemen- at transforming the deci- local newspapers and mail Denmark. ting an ambitious economic reform sion-making process at shots, and making informa- programme. local level by redrawing tion accessible on the Inter- Indenrigs- og Sundhedsmi- the municipal map, which net. nisteriet (2004) Aftale om Christian de VISSCHER has remained more or less strukturreform, Indenrigsog unchanged since 1970. Sundhedsministeriet, Nords- jÊllands Trykcenter, Denmark. However, it is questio- The Structural Reform nable to what extent the Socialforskningsinstitutet reorganisation of public (2004) Det kommunale rÂde- decision-making has really rum – Kvalitet effektivitet og In 2004, the Danish reinforced citizen participa- forskellighed i velfÊrdsydel- government – a coalition tion. In particular, concerns serne, Jan. Social Forskning, of the liberal party Venstre focus on the identified pro- Denmark. and the conservative party, blems relating to the lack

European Review of Public Action EUROPA ASSOCIATION - ISSUE 1 – MAY 2010 12 NEWS months. six previous of instead weeks, six tion(parental leave, equal pay) after kersthe terms of apermanent posi- that companies offer temporary maximum provided hours),wor-(48 time working on directive munity manentderogation fromCom-the Thecompromise concerns theper- otherworkingconditions.on2008 June of compromise Community after employers already accepted suresthe as too restrictive formea- these businesses,estimating hesitant, is paygap. However, theHM Treasury tatives, and the absence of a gender of the disabled, or minority represen-especiallyas regards the proportion staff, its concerning requirements impose on its providers transparency 2009, entitling every public entity to chargeequalityof drafted lawfora ministerin thehand,other the On a from contractor. unions trade of gnition fortender cannotrequire reco-the underCommunity regulations a call is an agreement, rather than a law, astraining and trade union rights. This accessto particularthe concernin state civil service. These agreementsthe in those to similar conditions under work officials that rantee under government working contractgua-haveto providers vice and tertiary-sector bodies, public ser-trade unions, ministries, employers’ British between associations 2008 July of agreements the Following tish public service providers SNAPSHOTS OFPUBLICSERVICES ROPEAN E u uropean

Working conditions at Bri- R

R eview e view

oof f P

P June BURNHAM uublic blic A A c ction tion oriented approach control- the of Reduction • sis and decision-making the of connectionbetween analy- Reinforcement • nition of output control towards precise defi- input from Development • culture evaluation of Integration • mechanisms measurement per of formance Improvement • civil service theestablishment seniorof employees’to mobility and The• elimination ofbarriers offer between public service link planning and closer A • service”, recommends: currentIrishpublicstateof the of evaluation ritative autho- “an as presented Service’, Public Integrated Europe. andtheNational Forumon EuropeanmitteeonAffairs Com- Joint the like tutions insti- on as well as service, repercussionson the public had and citizens and elite the between division the showed It players. EU and civil servants and politicians of relations the on impact on 12 June 2008) had a great Treaty (53.4% against 46.6% Lisbon the on referendum OEC the in votenegative The Lecturer in Public Administration at the D ’ s report ‘Towards an public services in Ireland Efficiency and improvement of - service However, no precise plan for level. local to sion-making centres, and transfer of deci- care local and hospitals of merger management, the of reorganisation mended recom- have Consultants and chains of responsibility. communication structure, regards as remain still ties spending. gross account for 30% of the total services health Currently, andprovide better services. regionalhealth committees approach of a vice, which has adopted the Ser- Health the surrounds EUR 50 million in savings). citizensestimated(anover with interacting services retaining while nistration, misation of savings in admi- which would allow the opti- proposals, identify to dies’ stu- ‘efficiency undertook issue of the carbon tax. addresssystem,theto and fiscal the of relevance the structure, the efficiency and tion was set up to study the vice. ser- public the of nisation commitments to the moder- contains 2008, September in partners social the by adopted salaries, on ment zens’ needs. Emphasis• meetingon citi Much controversy still still controversy Much The ministry departments taxa- on commission A agree- national draft A D (2005) to replace the epartment of Politics and Public Administration, University of unified health health unified D i fficul- - Steering Forum Authority the Local via All-Island continues rities autho- local the between collaboration The bodies. executive its and Council Ministerial North/South dule for implementation. linespoliciesof sche-anda guide- broad the provide vices.A White Paper should enhanced integration of ser- ticipatorymechanisms and election of mayors, new par- and direct functions, executive reserved between balance the of adjustment m It r suggests o f e restructuring R and sparked t off n a public e debate. m n r e v o G ties. possibili- citizens’ increase ofthe Mediator and thus to competences the extend to draftedwas bill A gress. to specify the identified pro- seriesrecommendationsof (RIA) (June 2008) proposes a RegulatoryImpactAnalysis the implementationof the of the legal basis. A study on nelled into the improvement and available options. demography,sustainability pensions: of revision tive exhaus- an provided sions on the Green Paper on Pen- published. recommendations has been the implementationof the Work continues in the the in continues Work Local on Paper Green A chan- are efforts Further consultation public The Limerick, Ireland . Brid QUINN EUROPA ASSOCIATION - ISSUE 1 – MAY – 1 2010 ISSUE - ASSOCIATION EUROPA SNAPSHOTS OF PUBLIC SERVICES

D ifficulties in mutual understanding

Hélène PAULIAT Professor in Public Law, University of Limoges, member of the University Institute of France, Dean of the Faculty of Law and Economics of Limoges

The Protocol on Services of General Inte- Lawyers at the Bar of Paris). fulfilment of powers of the public power rest (SGI), annexed to the Lisbon Treaty, and exclusively social activities. But the recognises for the first time in a provision The concept can, however, put an end borderline remains blurred, as the domain of primary Community law the non-eco- to some terminological uncertainties: in of vocational training proves it. nomic services of general interest (NESGI), fact, Community institutions do not always along with the services of general econo- refer to the same thing when they evoke The requirements for clarity and intelli- mic interest (SGEI), the SGI and the social different services. The European Economic gibility in law are not met in this sensitive services of general interest (SSGI). and Social Committee, the Parliament and area. This is even more pitiable as Commu- the Commission do not understand the nity law is based, inter alia, on the principle The concept of NESGI is legally correct, concept of SGI in the same way: whether of uniform interpretation; its uncertainties as it highlights the fact that these services it covers both tradable and non-tradable deprive concepts of their potentialities: do not pertain to the economic domain services, or it is more restrictive, excluding universal service is an example, which and therefore, are not subject to competi- non-tradable services? The new acronym sometimes turns from a dynamic concept, tion regulation. However, it is not perfect- might clarify the situation. a carrier of new rights, into a synonym of ly relevant, as every service may assume discount services. economic character: it would have been Not all difficulties have been resolved: more appropriate to evoke non-tradable some concepts overlap, thus, depending services, activities that do not take place on their characteristics, public social ser- on a market, and thus may not fall within vices of general interest may concern

the scope of competition (see in France, either SGEI, or NESGI. The NESGI category NEWS Council of State Decision of 31 May 2006, in general covers the activities linked to the 13 The potentialities of the Treaty of Lisbon

Pierre BAUBY Chairman of Reconstruire l’Action Publique (RAP), member of EUROPA scientific council

The Treaty of Lisbon, signed on 13 out in the Charter of Fundamental Rights role and the wide discretion of national, December 2007, which will enter into of the EU…, which shall have the same regional and local authorities in provi- force after being ratified by all states, legal value as the Treaties.” ding, commissioning and organising” comprises three major innovations in that service; the respect of “the diver- the field of public services or services of 3/ Protocol No 9 on SGI, annexed to the sity between various services (…) and general interest. two Treaties, with the same legal value as the differences (…) that may result from 1/ Article 14 of the Treaty on the functio- the latter, as it is an “integral part” thereof, different geographical, social or cultural ning of the European Union is explicitly concerns not only the services of gene- situations”; as well as the principles of “a the legal basis of secondary law, which ral economic interest, but all SGI, either high level of quality, safety and affordabi- results from a co-decision of the Council qualified as economic or non-economic. lity, equal treatment and the promotion and the Parliament and not only of the of universal access and of user rights”. Commission. It explicitly refers on two If a service is qualified as “non-economic”, occasions to the powers and rights of Article 2 states clearly that the Treaties Thus, the Treaty of Lisbon represents member states and their authorities and “do not affect in any way the compe- clear progress compared with its prede- has to be applied to all EU policies, inclu- tence of member states to provide, com- cessors as it creates new potentialities ding internal market and competition. mission and organise” that service. to guarantee and secure the services of general interest. But a strong political 2/ The legal value of the Charter of Fun- If a service is qualified as “economic”, pressure will be needed so that these damental Rights: “the Union recognises Article 1 obliges Community institutions potentialities lead to concrete measures. the rights, freedoms and principles set to respect at the same time “the essential

European Review of Public Action EUROPA ASSOCIATION - ISSUE 1 – MAY 2010 14 NEWS - and in the social security scheme objectives), achievement of previously set of bonuses depending on the - remuneration setting (distribution case of missed objectives), dismissal without compensation in fied objectives and possibility of contract of management by quanti- sal (widespread adoption of a - in the field of performance apprai- according to international use: pect of ethics and good practices and to promote guarantees of res- employees in private companies, fied in order to be closer to that of owned companies was also modi- The legal status of officials in state- prevention of conflicts of interest. transparency of remuneration and administrative and fiscal structures, tives, general principles of action, mainly in terms of mission, objec- - and to state-owned companies, panies’ capital and a stakeholder. - as the owner of a holding in com- owned companies: these principles concerning state- March 2007 applies to the state A Council of Ministers environmental policies. to support economic, social and particular in the field of strategies the best international practices, in contribute to the dissemination of high levels of performance and governed so that they can achieve State-owned companies should be tices for governance in society. sus for the adoption of good prac- In Portugal there is broad consen- nance in society SNAPSHOTS OFPUBLICMANAGEMENT ROPEAN E u uropean Good practices for gover- R

R eview e view Vasco Nascimento COSTA

oof f P

P D uublic e blic cision of A A c ction tion . tools. toring and financial control moni- of development by resource management and structures by better human administrative of nisation moder- the two, first the of result a as and, services, of quality of monitoring of introduction nistration; admi- the to regard with citizen-user the of place taking care of the opinion and the first procedures, administrative of fication simpli- directions: three in commitments made have implemented such reforms many policies. public in present now is logic objectives/results an lingness to in get engaged of their public sector. The wil- productivity the ving impro- at aimed reforms many states have launched staff, reducing necessarily Without culture. mance perfor- on based nisation moder- services public on crisis. economic the and developments cal technologi- to relation in citizens of expectations the and rules, market to services public of tation adap- difficult sometimes the technologies, new of development the states, between competition the and globalisation nomic eco- the to due Europe in services public of mation transfor- profound of cess have been marked by a pro- ys LAMARZELLE, Ph D en In In general, the states that imposes now Europe years twenty last The civil services performance culture in European Comparative analysis of D in Management Science, inManagement Certain states in northern northern in states Certain staff. the via sector public their control to try to sen cho- have countries Some elaborated. are luation eva- and management for tools monitoring parallel, In contracts. performance envisaging and ponsibility while res- of centres identifying objectives, of clear definition which the enable plans, mid-term strategic through ted nomy. auto- certain them grant ties to local authorities and responsibili- give to seeks devolution results, ficant private sector the with -entering into competition human resourcemanagement; flexible -more making; decision- and of devolution -decentralisation principles: major following the ment imple- that organisations public on impact certain a basis. These processes have regular a on evaluated are rewards and sanctions, and including are contracts, based performance- with bound management, in involved directly officials, Senior processes. various these supports strongly com- technologies munication and information The development of of development The This will be implemen- be will This signi- obtain to order In D irector of the civil service oflocalgovernments,irector ofthecivilservice mem- allowed. be will backward steps no ment is underway and now move- the But impact. real the measure to early too is it and yet available not is evaluation of these policies transparent way. In fact, the population in a completely the before for accounted by be should services funds public public of use the general, In possible. already is entities, private) or (state other with tition public players into compe- directors. their to and governments local to are also accountable they But common. more becoming private is sector, the to similarly function and autonomy considerable enjoy which toting executive agencies, increasingly desired. Resor- is operations and strategy agreements. bycollective managed conditions king wor- have already south the in countries some ver, Howe- sector. in private the those to similar rules by governed service civil a for opted have Europe ber ofEUROPA scientific council Behind this logic, putting between separation The EUROPA ASSOCIATION - ISSUE 1 – MAY – 1 2010 ISSUE - ASSOCIATION EUROPA SNAPSHOTS OF SUSTAINABLE DEVELOPMENT

Agenda 21 of French territorial authorities: progressive rise to power

Christophe CANTON, in charge of sustainable development for Agenda 21, General Council of Midi-Pyrenees An increasing number of French territo- regions. financial restrictions urge the leaders of rial authorities are getting involved in the local authorities to modernise the func- implementation of Agenda 21, i.e. territo- Apart from its quantitative aspect, tioning of their administration. To this rial projects for sustainable development. Agenda 21 is developing also in terms of end, certain elected officials opt for a sus- quality. Experts in the country estimate tainable development project as Agenda According to the Committee 21, an that these sustainable development pro- 21, which allows them simultaneously association specialising in relevant assis- jects are increasingly comprehensive, to cut their spending and to highlight tance to local authorities, the number of integrating to a larger extent the social their efforts in terms of exemplarity (envi- Agenda 21 projects should double by dimension, and are no longer confined ronmentally responsible public procure- the end of 2009 in France (if we believe to the environmental dimension of the ment, lower consumption of energy and in the intentions of the elected officials). problems. paper, transport optimisation). Thus, the country should have nearly 600 projects launched or completed by end- The rise to power of Agenda 21 in However, despite the recent progress, 2009, versus 298 on 1 January 2008. France is based on several factors. On it has to be recalled that French territo- the one hand, the population and local rial authorities lag behind their European All territorial authorities are concerned: politicians become really aware of global neighbours, in particular in northern municipalities, public bodies for inter- issues (depletion of raw materials, climate Europe. municipal cooperation, departments, threats). On the other hand, the current

The Mediterranean city in the face of climate change: NEWS innovation, investment, governance for a low-carbon city 15

Stella KYVELOU, Assistant Professor, Panteion University of Social and Political Sciences, Athens, chairperson of the SD-Med Association (www.sdmed.info)

This conference, organised on the ini- strategies and good practices, aimed at addressed the following issues: tiative of the International Network of SD- better management of the environmen- -urban development, transport, real MED, under the auspices of international tal impact of the city, especially in relation estate market; organisations iiSBE, CIB and UNEP, is part to climate change. -buildings and climate change; of the regional preparatory meetings for -management of natural resources in the SB08 World Conference (Melbourne, Amid large attendance, the conference cities following climate change; September 2008). The contribution of the was opened by the Greek Minister of Inte- -information and communication techno- meeting in Athens to this conference was rior, whose speech focused on the com- logies in cities; the report ‘A Low-Carbon City? The Medi- plex debate on climate change, as well -job creation and development in condi- terranean Answers’. as on the measures taken by his Ministry tions of changing climate; to adapt the relevant public policies. The -development of cities in low-carbon eco- The SD-MED network concerns all guest speaker was Stefanos Manos, for- nomy; countries in the Mediterranean basin and mer Minister of Public Works. He made -investment in sustainable infrastructure; some Balkan states. SD-Med is working for a review of the environmental policies in -promotion of waste-to-energy projects decentralized cooperation in sustainable Greece in the last 30 years. in the city; development, through its international -new forms of governance for a Mediter- activities and its institutional partnerships. The general topic of the conference was ranean city with reduced emissions of It has established a large network of climate change and the Mediterranean CO2: creation of conditions for collective teams and national delegates in the city: threats, relative costs, but also bene- international action; Mediterranean. Thanks to their activities, fits for the business and the economy. The -sustainable development and Mediterra- delegations from different countries of role of the administration and territorial nean cities: relations, interactions, contra- the SD-MED network were present at the authorities for the necessary adaptation dictions. event in Athens, to account for the current of management and urban governance state of their countries in terms of policies, was also discussed. This conference

European Review of Public Action EUROPA ASSOCIATION - ISSUE 1 – MAY 2010 16 PARTNERSHIP Coordination of social security systems in Europe PARTNERSHIP –MFP&CSE ROPEAN E the systems based on ? What principle is the coordination of damental principle Free movement of people as a fun- employment or residence. their of place the of regardless state, member a of nationals all to services equality of treatment and social securityguarantee provisions These 1408/71. Regulation of implementation the for procedures the down lays 1972 March Community. Regulation the No 574/72within of moving 21 families their and securityschemes employedto persons social of application the on 1971 June particular, Regulation No 1408/71 of in 14 and Law, Social of Code European fifth chapter on social protection of the Relevant provisions are laid citizens. down inof the movement free the mote pro- to order in systemssecurity social of coordination the to legislation cific the European Union has dedicated spe- Therefore, rights. security social their to comes it when namely individuals, hinderlawsmayfreemovementthe of national between discrepancies the Moreover, reasons. political and social often called into question for economic, is freedoms these of effectiveness the However, services. and goods capital, of movement free the with together Union European the of principles ding foun- the of one been movement has people free of the 1957, in Rome the shared competences between the the between competences shared the inArticle of5the ECTreaty, itconcerns downsubsidiarity laidprinciple.the As movementofpeople, andinrespect of essential for the effectiveness of the free principles, four on founded is systems u uropean Since the signing of the Treaty of of Treaty the of signing the Since The coordination of social security security social of coordination The R

R eview e view

of o f P

P ublic u blic A

A c ction tion D experts, and even for law experts, are are experts, law for even and experts, plicated and incomprehensible for non- com- as seen rules, Community cases. all in benefits security social guarantee to access to sufficient not is ciples pro rata calculations of rights). acquired(aggregationbeingor of cess pro- in rights of retention finally, and, legislations several to subject be not cable legislation, so that the worker may appli-singleresidence;principleofthe of change to due rights of loss avoid to order in benefits) of (export rights milationof facts); retention of acquired assi- the to linked of (principle nationals those to similar or identical tions obliga- and rights guaranteed is state member a of territory the on resident each -- treatment equal affirmed: are nity level. Thus, the following principles Commu- at efficient more is action the unless amount, their and conditions), system, the award of benefits (eligibility organisationthesocialtheirsecurity of for responsibility the retain latter The states. member the and Communities However, the assertion of those prin- treatment andsocialsecurity These guarantee texts equal member state, regardless of services to allnationals ofa services the place oftheiremploy- ment orresidence. very often after prolonged casuistries provisions, the of application for rules the clarify who (CJEC), Communities Europeanthe of Justice of Court the in judges theinterpretation by of subject ker as any other ? Is the civil servant considered a wor- discrepancies in terms of organisation,of terms indiscrepancies the right to pension. In fact, the national calculations of of field the especiallyin therein, derogations numerous the to servants, the headway is still limited due Regulation represents progress for civil this if even However, 1998. June 29 of 1608/98 Regulation by extended was civil servants. Thus, Regulation 1408/71 the coordination of special schemes for of domain the in legislate to need the 22, 1995. The decision brought forward November of case Vougioukas the in CJEC the by eliminated was tification jus-Amsterdam.This of Treaty the of 4 paragraph 39, Article in down laid as workers, of movement free the from administration public in employment the of exclusion the to due logical red conside- was exception This such”. as treated persons and servants civil for schemes security social special “the application material of scope its from excludes totally 1408/71Regulation of 4 paragraph 4, Article originally, ver, Howe- schemes. security social special priori,soare all civil servants subject to a and, concerned, is regulation the in out set risks several or one against red regulatory insu-personeach arrangements. Thus, European from ensuing benefits granting determines which scheme insurance facultative or tory obliga- an to affiliation the is it fact, In terms. the of definition legal a viding pro-withoutself-employedworkers or Community rules refer to employed employed to refer rules Community . EUROPA ASSOCIATION - ISSUE 1 – MAY – 1 2010 ISSUE - ASSOCIATION EUROPA PARTNERSHIP – MFP & CSED

financing and method of calculation, do reducing formalities. The scope of per- not allow the transfer of rights from one sonal and material application was also country to another for this category of extended. It clarifies the legislation appli- workers. Only amendment to national cable to civil servants covered by the legislation would enable the mobility of The new document reaffirms Regulation. Following the adoption of civil servants without losing their right the text, these employees are subject to pension. and reinforces the principles to the legislation of the country, whose of coordination, as well as the administration employs them, contrary cooperation between admi- to the workers from the private sector, nistrations, while reducing who are subject to lex loci laboris, i.e. the A new provision to reinforce coordi- law of the country in which the insured nation formalities. exercise their professional activity. The new Regulation results from an in-depth Regulation 1408/71 has been amended study of the different “chapters”, a term twenty-two times since 1971 to take into used to designate the different social account the developments in national security risks, by the successive Euro- legislation and integrate CJEC case law. pean Presidencies since 1999. The final Meanwhile, the Council discussed the version of the text is planned for 2009, issue in 1992 and 1998 and the European Regulation 883/2004 by the European ahead of the unanimous adoption by the Commission issued a communication in Parliament and the European Council 27 member states. 1997. Afterwards, in 2001 the Employ- on 29 April 2004. The new document ment and Social Policy Council proposed reaffirms and reinforces the principles Christine LEAL 12 parameters to modernise Regulation of coordination, as well as the coope- Expert in EU and international social protection / CSED representative 1408/71. This led to the adoption of the ration between administrations, while http://www.cse-d.eu

INTERVIEW PARTNERSHIP 17 How is civil servants’ pension coordinated ?

The Community rules laid down in and the pro rata, is attributed to the per- vants, they define a condition for pension Regulation 1408/71 are applicable to son concerned. allocation periods completed under this general pension schemes of employed special scheme. They are also subject to and self-employed workers. According Under the special schemes of employed the same compensation, but in fact are to them, each of the systems, to which or self-employed workers, a condition for exempt from any aggregation of periods the person concerned is subject, should pension allocation is the completion of completed in another member state, as make a double calculation – on the one periods in an occupational subject to the regulation limits it to the periods that hand the national pension, determined the special scheme or in a specific acti- its own regulation allows it to recognize. under the regulation of that system, and vity. They are subject to the same rules only for the periods covered by the natio- of coordinated liquidation, however, the Regulation 883/2004 does not elimi- nal system, and on the other hand, the aggregation of the periods is limited to nate this derogation. It would, however, pro rata pension. To determine the latter, the periods completed in another mem- have been suitable, in order to improve the theoretical pension is calculated in ber state under a corresponding scheme, the rights of the persons concerned, while the first place, under its own legislation, or, in the absence thereof, in the same retaining the specificities of these sche- but on the basis of all completed periods occupation or activity. In compensation, mes, to submit them to rules applicable under the different systems to which the if a certain right to pension cannot be to special schemes for employed and self- person concerned has been subject in exercised under a special scheme due employed workers mentioned above. the EU. Afterwards, the pro rata pension to this limited aggregation, the periods is calculated. The pro rata calculations are completed under this scheme are taken Jean-Claude FILLON (*) subtracted from the theoretical pension into account for the calculation of pension Deputy head of department, Ministries only for the periods completed under under a general scheme. in charge of health, solidarity and public the above-mentioned scheme. Then, the accounts – Social Security Directorate higher of the two pensions, the national As for the special schemes for civil ser-

European Review of Public Action EUROPA ASSOCIATION - ISSUE 1 – MAY 2010 18 CASE STUDY Public management in Europe performance Public management: Sustained CASE STU CASE ROPEAN E performance is not a legal category legal a not is performance general, in administration the of and ofthe civil service or the public service, domain the in more, the All formance. per- of terms in evaluated be cannot which issues non-measurable of ber performance, although there are a num- forquest theconstant reference theto servants. The reader will be sensitive to civil of remuneration and path career training, officers’ public management, and modernisation reform of administration, state public – significant most lopmentpublicof management seems the other hand, the fields in which deve- on and states, member in practices of meters – on the one hand, the diversity para- two intersect to interesting med see- it Therefore, it. implement which states European of and domains, and varioussectorsofterms in whole,both been has a as management public to dedicated research little management… However, public and vation inno- management, public new ment, manage- public local – management public of forms various the to studies and many organisations have dedicated hot is topic The magazine? European a of issue first the for necessary ment much better performance thancontinentalmuch better law. performance 4- This iswhat the World Bankreport its place inaneconomic regime dominated by laws market andtherequirements ofthecompetition? ” ché, conference; above-mentioned 3- See seealso G.Clamour, Intérêt général etconcurrence. Essaisurlapérennité dudroit publicenéconomie demar- 2009, to bepublished. 2- According to theexpression ofJacques Chevallier, oftheconference report summary “Performance andadministrative law”, Tours, 29-30January 1- V. J. Caillosse, «Le droit administratif contre publique?», AJ laperformance u uropean Why is an article on public manage- public on article an is Why D alloz, Nouvelle bibliothèquedesthèses, vol. 51,2006.Jean-Louis Autin, inthepreface by to asking: thethesis, starts “ R

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A c ction tion D oing Businessseemedt 1 , Professor inPublic Law, University ofLimoges, specificities: the concepts of reform and other on emphasis the puts topic that on writing authors the of vision pean Euro- the But structures. of shake-up the and institutions administrative of modernisation the reform, state the with dealing after policies public its of review general a launched country the as this, proves France issues. cal topi- always are administration of tion even if it is set to become a standard tt rfr ad h modernisa- the and reform State category,even if it is set to Performanceis not a legal becomea standard. o affirm, as o affirm, according tothepublication, the common law business regulations lead to D A, 1999,p . 195. D 2 . ean oftheF performance of administrations of performance and efficiency the with incompatible are constraintslawpublicthe ofthat is idea common increasingly an fact, in – only not but constraints, budgetary innaturally, sources,its hasimperative This coherence. and rationalisation for aspiration an by than ratherformance, are prompted by the imperative of per- place,take theystate which intanding notwiths- reforms, approach: first this beyond crystallizing be to seems issue fundamentalprerogatives.extendedA particularly have sometimes which result, to those of territorial authorities, a as and, state, the of missions the of reconsideration to lead modernisation the necessary impartiality and neutra- and impartiality necessary the from the private sector, techniques compatible with management spreading by or law, private from borrowings by possible made performance is then: is exploring.questionnowstatesTheare based on that tenet,… whose limits the of the administration the flexible management of the officials it favours the use of contracts, can allow as administration;law,privatethe only and good performance of the state and can lead to the modernisation, renewal consequence is logical: only private law member of the University Institute ofFrancemember oftheUniversity Institute aculty ofLaw andEconomicsaculty ofLimoges, D oes publicla 4 Thus, reforms are Hélène PAULIAT w stillhave 3 . The The . EUROPA ASSOCIATION - ISSUE 1 – MAY – 1 2010 ISSUE - ASSOCIATION EUROPA CASE STUDY CASE STUDY

lity expected from every administra- lack of common vision. The search for tion, and in general, from every public performance, therefore, cannot replace service? The answers are mixed, as this a strategic political vision. development calls into question one of the pillars of the civil service system – professionalism. It is also taken into Public management puts This lack of strategic vision is equally account that the fundamental rights remarkable in the field of public officers’ of the officials are not necessarily per- an emphasis also on per- training. Performance requires evalua-

fectly protected (including the equal formance-oriented human tion: in fact, performance is always lin- treatment or the equal pay for the same resource management. ked to objectives, indicators, methods work). As a result, there is a lack of cohe- to verify that results are in line with sta- rence and homogeneity in the treat- ted objectives. More precisely, training urope ment of the personnel. should be based on various elements. E in

If public officers are not in a position to attain the objectives assigned to them Public management places an either unilaterally, or in a contract, the employer should be able to offer them, emphasis also on performance-orien- between administration and politics? or to impose on them, training aimed ted human resource management. To what degree is the administration at rectifying the shortcomings. In a Besides, it is significant that the term politicised? The question is subdivided: more positive case, the administration management, borrowed from the world on the one hand, there is the minister’s

should be able to offer training to offi- management of business, therefore from the private cabinet and the status of the people cials changing positions to enable them sector, has managed to establish itself in who work there, sometimes referred to to properly perform their assignments. administration, deserting from the pri- as “temporary staff” (Spain), recruited

Nevertheless, in many states the trai- ublic vate, but retaining its “public” specifici- according to criteria as loyalty and poli-

ning offered is completely irrelevant to P ty. European countries are increasingly tical confidence; others highlight the professional imperatives. Sometimes putting in place evaluation mecha- absence of clear distinction between training is determined even before the nisms, evoking sometimes the major senior civil servants and personnel lin- 19 identification of needs. Therefore, the principles drawn from professional qua- ked to politics (Belgium). On the other 5 desire to introduce a performance- lifications . The most commonly used hand, there is the question of training based remuneration system without Y mechanisms consist in maintaining a of senior civil servants and person- preliminary reflection on vocational D system of recruitment competitions for nel recruited for a minister’s cabinet. training seems totally unrealistic. The civil servants, while progressively divi- Certain techniques were put in place, ding them by professions and fields; taking into account the existence of a emphasis should be put on evalua- and in introducing different recruitment time-limited mandate and an evaluation, however not in theory, but with systems for different posts. The require- tion allowing to measure the results real meetings with the official aimed ments for mobility within the European achieved by officials, and thus, to deve- at identifying their shortcomings. The Union force member states to look at lop their responsibility. Training itself major flaw of training policies is to CASE STU the practices of their neighbours. Howe- is in the centre of discussions in mem- conceive training as an obligation, in ver, officials and civil servants were only ber states, either because there is no the best case, or as an individual right, in rarely granted opportunities to discuss homogenous culture of senior civil ser- the worst case. Training should be dis- the reforms and the fundamental deve- vice (Belgium), or because the training cussed only within the culture of admi- lopments that would affect them, as of the administrative elite is still in its nistration; if performance is the target, if human resource management was beginnings and has to be promoted, training should be linked to the service seen as a secondary mission… Still, one especially for the young, who should and to the official, and should be based issue is under discussion throughout bring forward fresh ideas (Romania). on a clear analysis of needs. Europe: should we grant a special sta- The different contributions highlight tus to managerial staff close to the poli- the outrageous lack of coherence tical dimension or on the borderline between different systems, due to the

5- V. M. Beauvallet, Les stratégies absurdes, Comment faire pire en croyant faire mieux, Seuil, 2009 : “the managers adherent to evaluation techniques tend to seize the most delicate objects and the most qualitative dimensions of human activity. It was even proposed recently the efficiency of ministers to be checked by those tools. In the most difficult cases, it is not rare that the indicator, which should reduce complexity, blurs even more the notions it should clarify” (p. 120).

European Review of Public Action EUROPA ASSOCIATION - ISSUE 1 – MAY 2010 20 DOSSIER Public management in Europe CASE STU CASE ROPEAN E official. career prospects possibly desired by the and evaluation to take into account the training to linked be should itisolated; as regarded be not could approach an criteriapromotionforSuch rise.payor formance. Mobility would be one of the perfor search the was modernisation for motive leading the conclu- again that sion the to leads developments the of direction The Europe. in officers public movementof freefacilitates the their preference for a civil service which nityinstitutions havealwaysexpressed Commu- and requirements; European on based is systemmobility the where more relevant for countries like Bulgaria, of the other. The proposal seems all the experience the from benefit theory, in private sectors, as each of them should, the and public the between exchange intensive increasingly an for call path, career on bill the on or secondment example, for on provisions French And sector. private the from workers to applicable law the to closer officers public to applicable law the bring to means a only are mobility for rements requi- the and path career on placed focus the that is authors the of one by from training. An explanation proposed separately issue path career the treat Europe in provisions most that say to important is It performance.for search the on founded -- seemingly least at The issue is to bring closer the public public the closer bring to is issue The system. mixed a has Germany 1990s; the of reforms major the since ments agree- collective in determined been has it Italy in but law, by defined and local authority. In France it is laid down or by the the state adopted the system to according way, different a in mined deter- is salary The administration. the of remuneration issues for officials from centre the in also is performance that CNRS, 2008,p. 27. 7- «LaGRHest 6- L.Cluzel, u uropean The career path renewal is also -- -- also is renewal path career The The reader would not be surprised surprised be not would reader The R

R Le service public et l’exigence de qualité de l’exigence et public service Le eview e view -elle au service d’une gestion publique plus performante ? », in Où enestlagestionlocale, ?»,inOù Annuaire gestionpubliqueplusperformante d’une locales, 2008 descollectivités auservice -elle D Y

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A c ction tion loped. loped. For example, the reforms in Italy deve- be will culture service civil a that reforms through is it all at if reforms, new launch to compelled seems tion administra- The principles. sector vate pri- of transposition distorted of result the is which collective, not and vidual Performance is often conceived as indi- demands. their on depending users of ded by officials by ded provi- services public of quality the of evaluation the and indicators these of results the bind to inevitable is It vant. issue, and often indicators are not rele- sensitive a is performance measuring Besides, time. same the in develop not did methods working the as pointing, disap- be to out turned place in put mechanisms the Thus, salaries. certain set inflationand the non-revaluation of off- to used be would it probably most agreement, collective local a within discussed was bonus, efficiency an to of the remuneration, i.e. the one related part variable the if Moreover, case. the not often is which evaluation, rigorous particularly provide to necessary is it setting, remuneration for indicator an is productivity If effect. adverse times some- with but criteria, defined well tion was put in place, with more or less as an objective. Merit-based remunera- performance with sectors, private and , D alloz, Nouvelle bibliothèquedesthèses, 2006,vol. 52. tion, withtheprivate sector can alsogive to rise healthy The parallel, ortheconnec- administration hasreal ad- competition, inwhichthe vantages. 6 , with the satisfaction satisfaction the with , tion has real advantages. Local autho- Local advantages. real has tion administra- the which in competition, vate sector can also give rise to healthy parallel, or the connection, with the pri- the aspect: positive this forget to not important is it However, manoeuvre. for room little have structures tralised decen- Thus, people. young attract to regions and authorities local of hands the in means inevitable an constitutes also it but France, in today statute to even law, to related closely is it tainly cer- well: as functions remuneration at look should we setting, remuneration from Apart France. in measure a such of transposition the imagine can we leave… sick a on constantly is official propose economic sanctions in case an sible to reform the administration by by administration the reform to sible and A. Scaillerez makes sense: “is it pos- Thus, the question raised by S. Guerard others. the from separately treated is aspect each that impression the create article this in addressed topics various the and panorama European the and tasks. targeted less but similar forming pay a lot more than to civil servants per- agents, to whom they would be free to as they might be led to recruit contract rities need useful managerial resources, ded on the willingness to bring methods were resolutely foun- Public management is integrated, integrated, is management Public The new public management closer the public and private sectors. EUROPA ASSOCIATION - ISSUE 1 – MAY – 1 2010 ISSUE - ASSOCIATION EUROPA CASE STUDY CASE STUDY

reforming exclusively its tools, even its sequent duties. The profile of the offi- functioning, without reforming befo- cial will allow to propose them a career rehand its organisation, missions, and path in the short or mid term, according hence even its culture?”7 The diversity to the possibilities offered, and in line of professions offered by the adminis- with their training needs, and, above all, tration should logically lead to enhan- Public management presup- with their desires and career prospects. cing the variety of career paths, relying poses, in the first place, a politi- Depending on the way the official is on adapted training, and to adjusting cal initiative and a well-defined implementing the assignments and remuneration, eventually taking into attaining objectives after the training, strategy. account the efforts made by the offi- remuneration may take into account cial, including in terms of mobility. But performance and the quality of provi-

the new public management methods ded services. The system appears to be urope

were resolutely founded on the willin- simple; but nevertheless it seems that E

gness to bring closer the public and performance has blurred the necessary in

private sectors, in the name of perfor- understanding of the administration. In mance and rationalisation, and control a political initiative and a well-defined order that public management is effi- of costs; this presentation has thus strategy. Indicators should be used as cient, adapted management8 is nee- eliminated the positive dimension of tools, rather than an end in their own ded, which is not always available in bringing them closer, which would lead right. Therefore, the missions and Europe. to a possible improvement of the two objectives of the administration and systems. Nevertheless, even if the admi- the public service should be defined in management nistration is gripped by the idea of per- partnership with officials, but undoub- formance, it is not yet impregnated by tedly also with users. Results should it, as the political will is absent. Reforms be obtained in accordance with these are implemented throughout Europe, objectives, identified in cooperation ublic P but the spread of good practices, which with officials. The latter are evaluated to is the only way to achieve coherence of determine to what extent they are able the whole system, still lacks. to perform the defined assignments 21 and the assigned objectives. It is at this

stage that their need of training can be Y

The well-performing public mana- identified, because it is true that recruit- D gement presupposes, in the first place, ment through competition does not provide preparation for fulfilling sub-

8- M. Beauvallet : « Les instruments de pilotage ne remplacent jamais le pilote », op. cit., p. 146. CASE STU

Key points: • The public administration reform should be comprehensive: organisation, mission, culture, functioning and tools. • To put in place the logic of performance, a strong political will and the broadest possible involvement of officials are needed. Perfor- mance should not be motivated only by economic constraints, it should be linked to real management. • Training is a necessity, which should be deliberated upon within the service, both at individual and collective level. • The search for performance as a means to determine remuneration is present everywhere in Europe, but does not provide the necessary satisfaction, as adjusted and reliable indicators are not available.

European Review of Public Action EUROPA ASSOCIATION - ISSUE 1 – MAY 2010 22 CASE STUDY Public management in Europe Public management in Europe State reform and modernisation of administration CASE STU CASE ROPEAN E and the social protection system modelofhuman resource management theorganic architecture ofthe state, the of the Portuguese experience, ofconsidering state public administration, oncertain the aspectsbasis essential to all the reformspreferablemoremuchhighlightis to It emerge: in fact, they do not seem not will to modernisation exist. administration solutions to difficult issues raisedform way by suchpublic a complex reality. Universal enough to continuously adapt to the cur- that the structure of state services is flexible have lost some of their importance. expenseofothers, more traditional, that ties, to which they have to respondauthori- public to atdemands thenew rates just improvement of the existing system. ties as imposed by the structuralregions reform,or provinces orand local communi- rethinkingfunctionsthestate,theof of need to cut back on public spending; the the simply ormodernisation nistration organisation;concerns over public admi- administrativeofmodel systemticalor gainingindependence;poli- ofchange dingonhistorical specificities: process of lotaindifferent countries, often depen- the agenda almost everywhere in Europe.cularly inthe public administration, ison Organic architecture of the state u uropean Therefore,there should beguarantees It is virtually impossible to treat in a uni- The motives behind these reforms vary The transformation of society gene- society of transformation The Thesubject of structural reforms, parti- R

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A c ction tion . for one person recruited. person one for ment Model of human resource manage- ducedin 2005 the rule of go out of control. Therefore,growththeofpublic administrationPortugal can intro- ofnecessary civil servants. Withoutit, the would allow to strictly define the number ties, and use of economies of scale. redefinition of functions and responsibili- structures,removal ofdoubling services, rent situation, within the rationalisation of ment process, and the importance of of importance the and process, ment requiredfromcandidates recruit-thein path.Minimum qualifications should be mentprocess and throughout the career tion of workers is raised during Qualified:the• recruit- The question of the qualifica in several countries). growthinthenumber ofstaff, observed availableof personnel (which hasledto new workers easier than the reassignmentsystem does not make the recruitment of between services, so that the shouldrigidityallow the transfer of ofthecivil servants ranteesimpartialforselection. Mobility but without calling into question the shouldgua- be flexible, competitive and rapid,Recruitmentmobility. and recruitment that have to be trationdepends onitshuman resources relatively trite. An efficient publicmainresource adminis- ofpublic administration is • Sufficient: issuesTwo importantare – Member ofthelegalcommissionMember oftheEuropean Association ofPublic Pension Sector Institutions Only an adequate organic design design organic adequate an Only The idea that human resource is the is resourcehuman that idea The

: two departures departures two - of motivation. vice) are crucial for maintainingautomatic highpromotion andlengthlevels ser-of at favouring initiative and merit,(based instead on ofachieving objectivessystems evaluation and and management aimed performance career, the Throughout best. the to appeal to enough tigious attractiveservantsshouldpres-beand recruitment the professional status ofMotivated:• likewise,civilmoment theatof rements of citizens. and use new IT tools to meet future shouldrequi- be able to update their knowledgetedthroughout thecareer. Civil servants vocationaltraininghighligh-shouldbe Social protection system this article. resourcesjustify separatea treatment in accountsmotivationtheandhuman of disability,publicimpactonage),itsold against social risks: illness, unemployment, tems is a permanent and common budgetaryissue). balance of social protectionand,aboveall, financial constraints (the sys- the private sector, due haveto beenequality brought concerns, closer to workers from applied to employees of the privatemorefavourable sector.than the general regime ment and social protection,regimes whosefor appointment, rules arecareer develop- historicallyhave beensubject specialto administrationpublicthe officialsfrom The importance of this sector (protection However, in recent years state employees Inseveral countries, including Portugal, D eput y director ofCaixa Geralde Vasco Nascimento COSTA D eposit os, EUROPA ASSOCIATION - ISSUE 1 – MAY – 1 2010 ISSUE - ASSOCIATION EUROPA CASE STUDY CASE STUDY

FOCUS Spanish civil service and the new personnel statute

José RUANO Professor in Administration Studies, Complutense University of Madrid urope E in The Spanish constitution, in force since regimes, with the clearest expression administration, given that different legal 1978, delegates to the law the definition being the spread of special regimes, jus- regimes co-exist in the rest of the Euro- of the civil servants statute and the regu- tified from a functional point of view pean administrations with a variable lation of “the access to civil service in (health, education, research, armed intensity, where this legislative diver- accordance with the principles of merit forces, justice), and namely the division sity finds expression in the willingness and capacity, the particular conditions of public employment into civil servants to avoid the rigidity of an administra- under which civil servants can exercise and contract agents. In fact, a signifi- tive law incompatible with the require- their union rights, the incompatibilities cant percentage of public employees ments for flexible and efficient human management

system and the guarantees of impartia- are hired in accordance with labour law. resource management, chiefly in the lity in the exercise of their duties”. Howe- This phenomenon of “privatisation” of field of access to public employment, ver, despite this constitutional provision, public employment finds a more viru- professional career, mobility and remu-

the law regulating the basic statute of lent expression in local authorities neration. However, the element that is ublic

the public employee was not promul- (including regions) and in some sectors specific for Spain, apart from the inten- P gated until April 2008. employing a large share of female per- sity of the phenomenon in certain sec- sonnel (health and education, in particu- tors managed by local authorities, is that 23 lar), where the share of contract agents this so common trend affects not only can reach 30%. officials directly involved in public ser-

In the last 30 years a lot of changes vices provision, but also those exerci- Y

have occurred in the Spanish civil ser- sing typically administrative functions D vice. In the first place, the important pro- of control and regulation. Therefore, the cess of territorial decentralisation made co-existence of different legal regimes the autonomous communities the main in public employment is not justified by source of administrative employment, administrative or functional reasons. In with more than half of the public offi- The importance of the prin- fact, there is often the case of civil ser- cers. The immediate consequence was ciple of organisational auto- vants and contract agents that perform that the civil service regime in Spain identical tasks in the same administra- continued to apply only to the state nomy in the field of personnel tion, which creates problems for per- CASE STU administration. In return, each level of has multiplied the various sonnel management, as the different administration, and even each admi- forms of management imple- legal frameworks have to be taken into nistration, formulated their own per- account when working conditions are mented by each administra- sonnel policy, bringing forward their negotiated or when the functions of civil particular interests, without paying too tion in services provision. servants are determined. Sometimes much attention to cohesion and coo- this situation leads to unequal treatment peration mechanisms that are in place of workers performing the same func- in any common system of civil service. tions, although collective agreements On the other hand, the importance of managed to gradually bring closer the the principle of organisational autono- working conditions of civil servants and my in the field of personnel has multi- contract agents in the same adminis- plied the various forms of management tration. implemented by each administration in services provision. This favoured the As a matter of fact, this phenome- heterogeneity of public employment non is not typical only of the Spanish

European Review of Public Action EUROPA ASSOCIATION - ISSUE 1 – MAY 2010 24 CASE STUDY Public management in Europe State reform and modernisation of administration CASE STU CASE ROPEAN E u uropean mance of managerial staff and criteria of significant. The link between the perfor- management”,of public“new more is principles the on based and view of modernisation from a managerial point conceivedfactoradministrativeaofas of staff,management of profile new the recognition legal the resources, human In C2. andsub-grades, C1two intodivided C, gradeand B gradeA2, them,are grade A,divided into A1and thelevel of degree requested to access versitydegrees. Thesegrades, linked to launchedthereorganisationby uni-of orderinadapt tothem thetochanges grades of access to the civil the serviceof organisation the only corpsmodifies basis of political confidence. The statute staff”,on the officials appointed ry i.e. agents,contract agentsand “tempora- guished: permanent officials, temporary majortraditional categories distin-are there are no great innovations. The four activities. guidelines, indicating the limit of lawful educationalbeaimsto providetoand that constitute a code of practice which ethicalprinciples conductrulesandof obligationspublicof officers, based on blishesgeneral regulation of rights and first time that Spanish legislation esta- vatelife-work reconciliation. This theis moralsexualandharassment, pri-and respect for privacy, especially as regards and transparency of evaluation systems, objectivitythe tolinked ones,to-date thesametimeincorporating moreup- individual and collective rights, while at updatesthe list of rights distinguishing fundamentalrightspublicof agents. It to all public officials and includes a listrence of to all general principles applicable services.statuteThe refe- starts witha publicadministrationthein workthat general,orderincludetoinofficialsall the to“publicemployee” butvants, in ser- civil to exclusively refer not does explains the name of the statute, which As regards personnel classification, classification, personnel regards As service civil Spanish of dualism The R

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A c ction tion etc.), staff promotion and evaluation evaluation and promotion staff etc.), tioncorps,in grades, categories, ranks, (organisa-employmentpublic of tion organisa- of field the in prescriptions ry of Spain. On the contrary, all statutory tem, to be effective for the whole territo-establishing a common civil service sys- ding to subsidiarity criteria, incapable of hasbeenadopted lawdrafteda accor- administrationsin the country, in Spain different to belonging officers public raltraitscommon aof legal regime for statutespeanestablishthat gene- the authorities.localofEuro- Unlikeother will and the capacity of self-organisation tutory prescriptions depend on political administrations. policies of the most advanced European vation and control, present in the reformthe introduction of factors of staff moti- by evaluation regular of tools applies centralregulationnewtheelement of a fact, In officials. public all towards thetransfer performanceof evaluation tives is undoubtedly a first step towards ofresults inrelation to the unit’s objec- efficiency, effectiveness and the control However, it has to be noted that all sta- the capacity of self-organisa- depend on political will and All statutory prescriptions tion of local authorities. ments. govern- regional for self-organisation weakerstatemoreand autonomy and Naturally,less central legislation means them. concern that fields in bodytive legisla- national the and government conditionrighttothedecisions the of ditionally grants to nationalist minoritieshand, theSpanish electoral system tra- territorialfragmentation. othertheOn tion of public administrations fuelled by ted manner in the face of the multiplica- representation,coordina-a intheyact context,a inwhere despite theirweak role in the field of collective agreements,statute grants totrade unions centrala val of the statute? On the one hand, the appro- the by caused administration, state the in leadership of loss the for expression, should not be forgotten. moncore wasreduced tojustsimple a com- whose system, service civil a of administrative system, but the existence doubt, a very strong point of the tivecompetenceSpanish autonomy,and is,no trations,which in 1978 received legisla- room for manoeuvre to local authorities. andgeneral traits, leaving considerable statutefocused seriesona ofcommon result,the communities.anomous As auto- the of body legislative the on exclusively depend staff, managerial and agents contract servants, civil for betweenpostsandfunctions destined differentiation the even and models, Butwhataretheunderlying reasons The existence of 17 regional adminis- FOCUS EUROPA ASSOCIATION - ISSUE 1 – MAY – 1 2010 ISSUE - ASSOCIATION EUROPA CASE STUDY CASE STUDY

Civil service establishment in Poland

Jacek CZAPUTOWICZ Director of Poland’s National School of Public Administration (KSAP), Vice-President of the Board of Governors of the European Institute of Public Adminis- tration (EIPA) of Maastricht, Vice-President of the Civil Service Council

Civil service is an important element partisan nomenclature, linked to Solida- date, although many officials were not of the socio-political changes that took rity and to the opposition, joined adminis- willing to participate. place after 1989. The long tradition of tration. The civil service law (5 July 1996)

civil service dates back to the rudiments entered in force during the first period of The 2006 law launched the second urope of independence. The state civil service transition (1996-1997). It divided the posi- period of transition and created a reserve E law of 17 February 1922 was the first text tions in state administration into political, list comprising people appropriate to in regulating the civil service corps. It remai- – ministers, deputy ministers, advisers, and occupy managerial positions in the admi- ned effective until the end of 1974 and senior officials – which changed together nistration as permanent officials, people then was replaced by a labour code. This with the government; and politically neu- occupying high-ranking positions at the change weakened the position of civil tral, independent of political changes. time the law entered into force, people servants vis-à-vis their superiors and faci- However, the procedure of nomination to who succeeded in the competition of the litated the exercise of political pressure. the civil service corps remained inappro- National School of Public Administration, priate. The exams taken by people falling and later PhD holders. The law on state administration offi- into one of the aforementioned catego- management

cials of 1982 had to promote in rank civil ries took place just before the change of This transitional period ended when servants and the public administration. the government, and raised legitimate a bill on civil service reform was tabled In practice, at the time of the People’s criticism. Only 115 officials became per- at the Parliament. Senior positions are to

Republic, civil servants were bound by manent staff members in the period be filled via internal promotions, and in ublic

political loyalty, which predetermined the October-November 1996. Afterwards, the certain cases, via competitions organised P decisions for their promotion (the nomen- process was suspended. After the 1997 by certain ministries and administrations. clature). There were no clear and coherent elections, a new law was adopted at end- Hopefully, competitions will become 25 legal rules for recruitment, promotion, 1998 (effective from 1 July 1999). The civil widespread. training and improvement of professio- service corps is composed of officials hired

nal skills. The administration was charac- under a contract of employment and per- The bill introduced again the position of Y

terised by formality, low effectiveness manent officials, working in the services of Head of the Civil Service within the chan- D and quality of work, a disdainful attitude the government administration. The head cery of the Council of Ministers and not, as towards citizens and numerous cases of of the civil services, appointed for five earlier, within a separate administration. breach of law. Also widespread were the years, becomes the administration’s cen- Such a situation may raise concerns over politicisation of the administration, cor- tral body, but the Prime Minister remained the independence and neutrality of the ruption, lack of mobility of officials, and at the top of the hierarchy of this corps. head, but the close institutional link with the fragmentation of responsibility in staff The position of director-general was crea- the Prime Minister – the hierarchical supe- management policies (sectorisation). ted in each administration to ensure the rior of the civil service – should reinforce functioning and continuity of the work in his position within the administration. CASE STU the service, the organisation of work, the application of rules imposed by labour The civil service system is mixed with a Post-1989 changes law, and the direct control over the units predominance of the career system rules. in the service. Thus, there is a period of traineeship, sta- After 1989, there were two periods of bilisation of recruitments of officials, the civil service establishment – and we are The 1998 law marked the beginning of automatic indexation of salaries and the on the threshold of a third one – separa- a period of “competitions” to fill in mana- de facto existing link between length of ted by periods of transition. During the gerial positions. However, there were few service and level of remuneration. The first phase (1989-1995) Poland, as other candidates and most of the managerial principles ensuing from this system apply Central European states, focused on eco- posts were occupied by “acting” directors. to civil servants in particular, rather than nomic and political reforms. All political to all employees of civil service. They stem forces concentrated on the importance of These competitions, meant to gua- from the system of positions, the open strengthening the democratic state and rantee the professionalism of the mana- and competitive recruitment, the priority establishment of a public sector based on gerial staff, have often served only to given to skills corresponding to a certain professional and politically neutral civil regulate the situation of already available post, and the use of competitions for high- service. At the same time, outsiders to the officials rather than find the best candi- ranking positions.

European Review of Public Action EUROPA ASSOCIATION - ISSUE 1 – MAY 2010 26 CASE STUDY Public management in Europe State reform and modernisation of administration Ethical rules sions of the government. This law provi- mis- the accomplish to order in realms nise the cooperation between these two orga- to and administration, executive administration (“meant to govern”) and political separationof requiresthe tion of the Council of Ministers. Good opera- 1996 on the organisationof and law operation the by introduced was service measures is under consideration. executory introduce to necessity The involved.been had they case whose in they cannot be hired by a businessman, state, later a At benefit. material any – requireor accept – directly or indirectly cannot They law. the with compliance non- of case in superiors their inform should and contravention, or offence orders, except when they constitutes an superiors,out withoutrefusing carry to be loyal to their administration and their should professionalism.They and grity from personal relations, work with inte- coming pressure to in giving without law, treat all citizens in an impartial way The officials shouldact according to the neutrality. political and impartiality ty, Constitution) the – professionalism, of integri- 153 (Article service civil the of values the from ensuing conduct, of standardsof set a is Service Civil the of opinion. all employees and transparent to public based on objective criteria, identical for remunerationpromotionand and tion, systemrecruitmenttheofof selec-and Another important element is the clarity interest of the public the goodin and act the but state. group, a even or vidual indi- an of interest the champion not performance of their tasks. They should tial duties of the officials is the impartial essen- the of One servants’ethics. civil CASE STU CASE ROPEAN E u uropean The division between politics and civil Introduced in 2002, the Code of Ethics for rules introduced law 1998 The Civil service establishment in Poland R

R eview e view D Y

of o f P

P ublic u blic A

A c ction tion sphere and the civil service and avoid avoid and service civil the and sphere political the between cooperation the structure help cabinets These tions. considera- economic to due reduced, ment for an indefinite period of time. the civil service are hired in open of recruit- officials The superior. political their of mandate the of duration the for ted neutral fulfillment of state missions. nal, upstanding, impartial and politicallyprofessio- a guarantee to is objective stipulated in the civil service law, whose acting as an advisory and analysis unit. role, special a has Ministers of Council the of head the of cabinetpoliticalThe ministries. of procedure of rules the in determined were competences whose administration,the inpoliticalcabinets dedthe legal basis for establishment of The number of political advisers was advisers political of number The recrui- are members cabinetPolitical The organisation of the civil service is values of the civil service – pro- The Code of Ethics of the Civil fessionalism, integrity, impar- of conduct, ensuing from the tiality and political neutrality. Service is a set of standards defending its privileges. professionalcorporation,a intomation the political class prevent their transfor- with contacts servants’ Civil problems. reinforce it and to make it impervious to withinhastobethepolitical system, to It service. civilPolish of characterlitical political class only partly justify the apo- and the poor ethics of the contemporary The realms. detrimentalcommunismexperienceof two the of isolation the Remuneration affects the ethics in civil service. work more difficult, and thus negatively of evaluation the makes development; rent services, resulting from the historic diffe- between gaps perpetuatesthese it However, inflation. to due neration remu- real the of decline excessive an preventto meantaremultipliers These base remuneration) may be added to it. the of 20% and 5 (between service of length for supplement a and plement sup- special A base. remuneration the obtain to multiplier”, an “individual by increased is rate.sum inflation This the to according year each rises and law budget the in determined amount”,is or “base remuneration, the of culation cal- for basis The positions. similar for 2 to 1 from varying services, different of levels pay the between difference has a disheartening effect. system unjust An tasks. facilitates and motivation of the source a is from which work, results the with salary the bind should system remuneration The the ethics. service civil and justice of sense reinforces quality, and quantity work on depends level remuneration Currently there is an unexplained unexplained an is there Currently the where system, transparent A EUROPA ASSOCIATION - ISSUE 1 – MAY – 1 2010 ISSUE - ASSOCIATION EUROPA CASE STUDY CASE STUDY

The decrease in unemployment over the last years led to the creation of an employee market. In 2007 the average salary of officials increased by 10.5%, as a result of the integration into the European labour market, and the 2008 budget law envisages additional 10%. This offset the pay gaps between ser- The European Commission expressed concerns over the vices and led to a closer link between

politicisation of civil servants in certain sectors of administration, remuneration and professional results. which hinders the creation of a fully professional civil service. urope Evaluation of the Polish civil service E system in

In its last report on Poland’s preparation for the accession to the European Union, the European Commission noted that few high-ranking officials were hired following a competition. Although standards for all public administrations. of a civil service register. the situation improved, it expressed The civil service is divided into segments – the strategic planning process and the The requirement for free movement management

elaboration of a policy that varies from of employees in administration requires institutions to institution. There is no the amendment to the law, as planned procedure for granting the official deci- by the reform, in order to enable the

sion-making responsibility, although recruitment of citizens of EU member ublic

civil servants of middle and low levels states. P are not eager to take on responsibilities and leave decision-making to their Poland, a member of the European 27 Currently, there is an unexplai- superiors. The law on access to public Union for more than four years, is pre- information that guarantees the access paring its Presidency in the second half ned difference between the to information on the activities of the of 2011. Its success is conditional upon Y

salary levels of different ser- authorities, has, however, received a the quality of the public administration, D vices, varying from 1 to 2 for positive evaluation and contributes to which to a large extent determines the curbing corruption. capacity of the country’s development, similar positions. its position within the EU and in the The SIGMA report has found out that world. The civil service has to face new civil service has an adequate legal fra- challenges, requiring professionalism, mework, but its implementation is too creativity, responsibility of state civil ser- slow and is hindered by many obstacles. vants, while acting in conformity with The main weaknesses are the lack of the law. CASE STU political guarantees for impartiality, and the inefficiency of the mechanisms for protection of the civil servants’ honesty. The human resource management sys- concerns over the politicisation of civil tem in public administration is incohe- servants in certain sectors of adminis- rent, and the report recommended the tration, which hinders the creation of a introduction of recruitment and promo- fully professional civil service. It obser- tion standards, a remuneration system ved lack of uniformity of principles and based on clear criteria, and the creation

European Review of Public Action EUROPA ASSOCIATION - ISSUE 1 – MAY 2010 28 CASE STUDY Public management in Europe State reform and modernisation of administration nistrative capacity; continuation of the the of continuation capacity; nistrative tions guaranteeing democracy and the the and democracy guaranteeing tions administrative reform; promotion of of promotion reform; administrative rule of law; strengthening of its admi- its of strengthening law; of rule the first issue of EUROPA’s of issue first the magazine? in WhyUkraine we should include threats stability and effectiveness of institu- of effectiveness and stability transparency and accountability of the the of accountability and transparency authorities: ‘ authorities: decentralised of those administra- including tion, public the for priorities Ukrainian civil service decision-makers. civil service Ukrainian international and European sources and to referring named be will threats and weaknesses The Ukraine. for tunities Action Plan Action EU-Ukraine The development. nable sustai- and economy market of ciples good prin- of the and relations neighbourhood promotion rights, including minority rights, human for respect governance, good law, of rule the lar particu- in values, shared by justified bloc. communist former the of countries the towards enlargement EU of wave big first the after 2004 in launched (ENP), in the European Neighbourhood Policy in WTO 2008. And is the country a major player the joined Ukraine as ment, 2007, will cover a free movement agree- ned agreement, under discussion since strengthe- new A 1998. since force in 1994, in Agreement Cooperation and former USSR state to sign a Partnership country yet. However, Ukrainecandidate isa the firsteven not is and member issues; SWOT sensitive analyses are Ukraine in vice CASE STU CASE ROPEAN E u uropean 3- http://www.center.gov.ua/data/upload/publication/main/en/275/Green_02_-_Secretariat_of_CabMin_E.pdf 2- See: http://www.delukr.cec.eu.int/site/page27836.html 1- SWOT: strengths, weaknesses, opportunities, threats. The ENP is based on enlargement enlargement on based is ENP The is not a European (EU) Union Ukraine ser- civil and reform Administrative . We shall present the real oppor- R

R eview e view 2 further strengthening the the strengthening further of 2005 enumerates the the enumerates 2005 of D 1 show a large number of Y

The slow adaptation of Ukrainian civil service to EU standards of o f P

P ublic u blic M inistry ofInterior,inistry Overseas Territories and Territorial Authorities, Secretariat Generalincharge ofadministrative cooperation A

A c ction tion sion to the Council of Europe Group Group Europe of Council the to sion D Ukraine’s Main between agreement an ning the reform of the civil service service civil the of reform the ning directly directly related to those of its EU Hence, these issues are more and more regards Ukraine regardsUkraine as context the of aspects Some bours of States Against Corruption Corruption Against States of based on European standards; acces- standards; European on based the 17th anniversary of its indepen- its of anniversary 17th the administration, in particular concer- particular in administration, its neighbours, including Ukraine. including neighbours, its with along counterparts, 27 its invited latter the 2008, in EU the of Presidency ( vice General of Administration and Civil Ser- its French counterpart – the e sion-making procedures based On 24 August 2008, Ukraine marked marked Ukraine 2008, August 24 On blishment of democratic deci- Its goal is to enhance the pro- partment partment of Civil Service (M on good European practices. fessional capacity of civil ser- analysis of policies and esta- vants in the framework of D . . For instance, was in 2006 signed G Former headoftheNational Academy ofPublic Administration at thePresidency ofUkraine AFP). At the end of the French the of end the At AFP). D irectorate (GRECO)’. D C neigh- S) and by the M the by Activity of Analysis Groups on Policies Policies on Groups Analysis of Activity governance good of The three pillars laws – including the civil service law ! key of adoption the in parliament the creatingreformsdifficultiesandthe for statethe modernisation, slowing down disturbs battle ideological continuing mer allies for- of the Orangethe Revolution. among The also gap political a is the summer of 2008, Georgia. But there when it comes to issues like NATO, or, in Russiaandproponents mostobviousis The rupture between the EU proponents opinion or geographical origin, or both. language gives a clear signal of political other the or one of use The language. official second a as Russian of duction PrimeMinister,intro- theforcalling are of Regions, the ‘blue’ party of the former Party the of leaders However,the tion. Revolu- Orange the of symbols mark land- the of one is and service civil the of therefore and state the of language official the is Ukrainian vulnerabilities. at but thesame time itisexposed to risks and advantages, of number a has Ukraine inhabitants. million 47 some nent with more than 600,000 sq. km and conti-Europeanthe on country largest soviet socialist republics and now is the important most the of one be to used Ukraine Russia, with Together dence. Ukrainians themselves in a pilot project, by made are analyses useful most the have been drafted since end-1990s. But gies, action plans, concepts and policies strate- reports, of number A resources. financial resources and above allframework, human legal and institutional an on the three pillars of good governance: citizens, public administration depends in Ukraine’s Administration Ukraine’s in To be efficient both for the state and for D C S, funded under the state state the under funded S, Anne AZAM-PRA Vira T. NANIVSKA , launched launched , D EILLES, EUROPA ASSOCIATION - ISSUE 1 – MAY – 1 2010 ISSUE - ASSOCIATION EUROPA CASE STUDY CASE STUDY

budget and implemented by the Inter- Three-fourths of civil servants are rather national Centre for Policy Studies in young, as 72% are under 45 and barely 2005-2006, at the request of the Centre 1% are over 60. 75% are women, but few for Support of Civil Service Institutional of them reach high-ranking positions, Development (hereinafter referred to with 10% (top-level) and 24% (deputy- as the Centre). Its goal is to enhance the level). The turnover is quite high – 46.4%, professional capacity of civil servants for a number of reasons: working condi- within the framework of analysis of poli- Governmental bodies, pro- tions, weakness in the recruitment and cies and establishment of democratic cedures, professional attitude promotion procedures, lack of HR stra- decision-making procedures based on and competence of civil tegic planning and career planning and 3 good European practices . servants do not correspond to prospects. The reference document on characteristic types of professional qua- the needs of the day.

The Green Paper of the secretariat lification of state civil servants’ positions urope of the Ukrainian President of 22 June remains rather theoretical and rigid. E 2006, Public Administration Reform in in Ukraine gives a severe diagnosis: ‘The An OECD evaluation in 2006 and 2007 major cause for the functional crisis of concerning the European Principles for the executive power is the profound gap Public Administration, released in SIG- between the non-reformed machinery MA N°27, did not praise much Ukraine. of government and a new really func- The bill lays down the following prin- tioning democratic political system, a A cabinet minister coordinates its ciples: rule of law, political neutrality, product of free elections, free political functions. The MDCS has 8 departments, professionalism, ethical conduct, loyalty, competition and free mass media. The with 120 civil servants and representa- responsibility, objectivity, transparency, management

vertical administrative machinery of tions in each of the 27 districts. It pro- stability and equal access to civil ser- government, which has not been refor- vided assistance to the Center, set up in vice. The Human Resource Management med since soviet times, despite the 2003 and renamed in 2008 as the Centre Strategic Framework puts forward seve-

incessant changes of staff and structure, for Adaptation of the Civil Service to the ral targets to support these principles. ublic

cannot simply operate efficiently in the Standards of the European Union8. The In February 2008, the MDCS obtained P conditions of freedom and open compe- Parliament votes the national budget, the status of an observer at the OECD tition between the groups of legitimate while the policy of remuneration of civil Public Governance Committee and the 29 interest. […] Governmental bodies, servants is defined by the legislation Centre started cooperation with the procedures, professional attitude and and orders of the Cabinet of Ministers9. NATO Liaison Office in Ukraine. In April

competence of civil servants do not cor- Negotiations are not held with trade 2008, a new bill on the code of ethics Y 4

respond to the needs of the day.’ unions or civil servants themselves. A for persons authorised to perform state D disproportionate amount of pay is dis- functions was tabled at the parliament. The acting civil service law dates back cretionary, based on a complicated However, despite its progress, it is diffi- to 19935. In 2004, the President’s decree system of bonuses. Transparency Inter- cult to draw conclusions as regards the on the adaptation of civil service to Euro- national says that Ukraine is to a large reform of the administration and civil pean Union standards6 launched efforts extent affected by corruption. service in Ukraine: the political situation for its update. However, on 19 Septem- remains unstable and the bill has not ber 2008, the Parliament rejected a bill In 2007, civil service amounted to been adopted yet… and once passed, and a new bill was drafted at end-2008. some 277,000 employees, including it has to be applied ! CASE STU The MDCS was set up in 19997 as a cen- the officials of the Ministry of Defence, tral administration for development and Ministry of Interior and the Security Ser- implementation of policy concerning vice (11,284) as well as decentralised administration and civil service. local administrations (around 99,000).

4- http://www.center.gov.ua/en/253.htm Traduction française à partir de l’anglaise publiée sur le site du Centre. 5- 16.12.1993: Ukrainian Civil Service Act (Ukraine’s Supreme Council Decision #3724 16 Dec 1993), (amend. in 1995; 1996, 1999 and 2001). 6- 05.03.2004 # 278 7- President Decree on Statute of the Main Department of Civil Service 02.10.1999 # 1272 8- Cabinet of Ministers Decree on the Centre for Support of Institutional Development of Civil Service 04.06.2008 # 528 et http://www.center.gov.ua/en/ 9- Cabinet of Ministers Regulation No 268 9 March 2006.

European Review of Public Action EUROPA ASSOCIATION - ISSUE 1 – MAY 2010 30 CASE STUDY Public management in Europe Public management Public management in Europe CASE STU CASE ROPEAN E pean integration nistration reform in the context of Euro- admi- public Romanian the of analysis the in shown as Germany...) Italy, UK, of the (France, states assistance member numerous the and Commission European the of support and advice the to thanks improved has lopment velopment D Preface attract some of the thousands of moti-thousandsof the of someattract to designed and training on focusing fessionals Scheme (YPS). Pro- Young the through learned sons les- and gained experience the builds upon It management. and training various approaches to staff recruitment, into account other European countries’ demonstrated in most EU countries. quality of level the reach to nistration time and significant funds for the admi- takes It yet. level optimum an reached not have Romania in officers public of training and funds. long-term substantial requires tence of knowledge and professional compe- improvementthe asresources, human to comes it when particularly criticism The agenda of goals. the reform has provoked human required achieve of to resources capacity and structures procedures, of quality the on depends Professor at theBucharest Academy ofEconomic Studies, vice president ofEUROPA Association, former ofPublic State Administration Secretary Reform u uropean e The YPS is a European project (PHARE) The development of civil service takes The institutional and legislative deve- competence and qualification The reform administration public The R

R : eview e view D Y

professionals in focus The future high-ranking public administration in Romania: young of o

1 : f . P

P ublic u blic A

A c ction tion pleted successfully the programme; the dates applied and over 300 people com- (CUPAR) – joined forces in this project. Reform Administration Public for Unit Central the and (INA) Public of Administration Institute Servants National Civil (NACS), of Agency National radical shake-up. measures. This is not development, but these for required speed the on but – place in put supposedto Romaniawas concerns did not focus on reforms – that The period). pre-accession (the EU the short deadlines given to Romania to join member states. said the in as well as Romania in rities variousministries andterritorial autho- lands); they include also traineeships at Nether- the Italy, Spain, Germany, UK, leges of the member states (France, the in several prestigious universities period and col- two-year a covers training The there. development rapid their in positionfinding civil servicein a in and trains them,evaluates themandassists them candidates, potential selects YPS The sector. private the as well as sector service civil the equally serves administratorsof training the which in specialisations career new of duction intro- the involves This policies. public theprocedures andimplementation of of improvement the in support ment young public officers. and graduates university young vated From 2003 to 2007, over 1,600 candi- the – institutions Romanian Three the by justified was work YPS’s The It targets to enhance the manage- the enhance to targets It work for local administrations tor (and paid for their training), the rest sec- private the to go to chose 10% – INA…) justice, customs, (in positions tions, some have already reached senior administra- central the in career their budget stood at about EUR 7 million. system the in confidence candidates’ ensures commission,a mechanism, as cialsuch professionalaplace inoffi- anand way take to has re-evaluation subsequent The whole process of selection, training, tions of senior civil servants in Romania. genera- future the training of goal the programmehas to continue to achieve The implementation of the ongoing YPS the government and the economy. of sectors different between mobility account this diversity, encouraging staff - Remuneration and benefits taking into rience and aptitude; expe- qualifications, of variety wide a ensures This background. diverse of - ,Selection enabling to pick candidates the top management of administration; in new-comers of entry the encourage Introduction- fast-tracka of schemeto lows : fol- as programme the for the up prospects sum can we Nowadays peut programme ce de futur le Aujourd’hui Conclusion Roumanie, 2006. européenne, PAIS III, Institut Européen de contexte de l’intégration de l’administration Publique dans le 1- M. Profiroiu, T. Andrei, While 80% of the graduates started started graduates the of 80% While

: D .

D Marius PROFIROIU Marius i nca, Réforme . EUROPA ASSOCIATION - ISSUE 1 – MAY – 1 2010 ISSUE - ASSOCIATION EUROPA CASE STUDY CASE STUDY

FOCUS Public management makes foray in politics and administration

José RUANO Professor in Administration Studies, Complutense University of Madrid urope E in The idea of a public manager implies (in general among civil servants) for is possible as long as they are selected necessarily a reference to the area of exclusively political or personal rea- on the basis of ‘professional qualifica- convergence of politics and admi- sons. Now the statute does not rule tion and experience criteria’. The pro- nistration, that is ‘interface positions’ out confidence criteria, but it tries to cedures stick to the model applied in (Ziller), which are in the borderline of combine them with the prerequisites big Spanish cities since 2003, where government and administration. The of capacity and merit, while regulating the definition of excellence criteria is problem lies in the division betwee the performance evaluation. not followed by objective verification political positions and management measures. management

positions, as it is difficult to make the The attempt to professionalise the difference between the competence senior levels of administration is in line In spite of the declared ambition of an individual administrative unit and with the fruitless attempts at differen- to set up a homogenous group of

political structures and the support of tiation of politics and administration, managers, the regulation on manage- ublic

the elected officials. The traditional reaching the transformation of execu- ment positions shows a new duality P Spanish system was characterised by tive officials into managers employed between staff members and others. the rejection of professionalisation of by the political management under The former could hold all senior posi- 31 the public manager and the distorted the delayed effect of the latest waves tions, whereas the latter could occupy concept of selecting ‘temporary’ staff, of the ‘new public management’. In only positions which do not involve

that is party associates who have gai- fact, this distinction echoes the res- ‘the exercise of public power or the Y

ned personal or political confidence. ponsibility of elected officials in their safeguard of the general interests of D This option – quite far from the criteria public decisions by virtue of citizens’ the state and public administrations’. based on merit and capacity – faithfully vote. The delimitation of political deci- This might create management pro- represents the application of a spoil sion and implementation can serve as blems for this type of staff. system of a closed circle (Quermonne). a screen impeding the accountability It is characterised by the lack of relation of elected officials, which is among the On the other hand, the fragmen- between the occupation of the posi- reasons for loss of legitimacy of wes- tation of the Spanish administration tion and performance or performance tern democracies, and moreover if we makes it difficult to get a clear idea of evaluation. say that the statute does not oblige the real politicisation in administration. CASE STU elected officials to give up selection of It depends on the legislative develop- In the face of this outdated bureau- managers within the limits of qualifi- ments in autonomous communities, cratic tradition, the statute of Spanish cation criteria. which will give room for manoeuvre staff of 2008 sets up a new professio- of the political authorities in every case nal group inserted between political In 1984, the Spanish civil service sys- in the process of election of manage- management and senior civil service tem opted for a clear-cut separation rial staff and will condition the future in the vague area where politics and of the public sector and the private battle between the senior civil service administration meet. Unlike the legis- sector, referring to the incompatibility and the political class for the distribu- lation in other European countries, of public and private positions. Hardly tion of the new professionalised posi- which specifically regulates this pro- any regulation exists today to create tions. fessional group (dirigenza in Italy, and an obstacle to the movement between senior civil service in the UK), until different areas: from administration to recently Spain did not have a proper private businesses through the overs- regime for the group of senior civil taffed workforce; and vice-versa the servants in the public sector, hired integration of private sector managers

European Review of Public Action EUROPA ASSOCIATION - ISSUE 1 – MAY 2010 32 CASE STUDY Public management in Europe Public management CASE STU CASE ROPEAN E o ae n cie at ad further- and part, active an take to able be to position a in not was staff them. to subject been has it paradoxically but reforms, up sped or support given not has staff lism professiona- within the said administration; the of lack the by affected negatively been have administration public in introduced innovations and more, numerous technological reforms Further- the professionalism. for of purpose models training or gement lable for the purpose to establish avai- mana- not are policies sustainable and Serious development. and promotion resources human or services of ment assess- real a for plan a includes rarely the one primary being salary payment. formalities; contractual of application presence of the the employeeon in but view of theservice, on based not is It required for control-related formalities. service, secondary a only but activity, strategic a represent not does sector resources. human of administration word: one In consultants. external of use of cases fewer administration, the to adapted professionalism of development and establishment objectives, termined prede- of pursuit the in managers to responsibilities and resources enough of allocation employees, of motivation for call also pro- but simplification, cedural and organizational require regulatory, tape red the cut to attempt the and administration public by ded u uropean On the contrary, we can say that the the that say can we contrary, the On It is reduced to simple staffing, which public Italy’s in management Staff The improvement of services provi- services of improvement The R

R eview e view D Y

of o Management of public officers’ training f P

P ublic u blic A

A c ction tion in France. in room for comparison with the situation the average in Europe and there below is little well is training staff public on spending its that fact the for notorious needs of current administration, Italy is new the of backdrop the in servants civil and managers of classes new of training the of mostly and qualification improvement the in investment enhanced of necessity the to as ments govern- of awareness the raise to tried cation. qualifi- and training of absence the in capacity, organisational and resources latter started in 1990s, due to theThe lack of change. administration public of process the in so, do not did it more little room for comparison with Although civil service ministers have have ministers service civil Although average in Europe and there is staff training is well below the In Italy, spending on public the situation in France. P rofessor inAdministrative Law, SecondUniversity ofNaples needs of administrations for develop- for administrations of needs the to response – possible a are represent they as numerous too – latter The schools. administration and sities univer- to assigned is managers public in Italy, the training of civil servants and conditions. economic of sion of the best product in combination rules establish conditions for the provi- tender public where market, free the market. training the on viders -- both public and private -- service pro- heterogeneous and numerous of bility ning courses. courses. ning improvement of services following trai- the on data considerable obtaining at least at aimed is this work, subsequent in or training, during Either terms. tive qualita- and quantitative in objectives measurable and predetermined and courses, on the basis of defined models training on information detailed ning, would require annual (and officials, multi-annual) plan- managerial to sible not previously nuing acces-education, conti- resources, financial appropriate effect. effect. negative a had the plans in financial annual resources necessary really of quantification of elements of absence and planning is concerned. The flagrant progress as far as courses programming achieved not have – level regional as well as central at – authorities Italian the theory, in goals such have which However, traditionally and not only only not and traditionally However, to belong services training Certainly, In fact, apart from certain stable and and stable certain from apart fact, In Another important factor is the availa- D e spite the availability of standards standards of availability the spite RRACCIANO Gennaro T e EUROPA ASSOCIATION - ISSUE 1 – MAY – 1 2010 ISSUE - ASSOCIATION EUROPA CASE STUDY CASE STUDY

ment of training plans and guarantee authorised to assign such an important maker refers to training only twice: it of the specificity of highly specialised service to the private market alone? Is establishes a six-month training period courses which cannot be offered by the it possible for public administration for the promotion to the position of a market, because of the specificity of the schools to keep their already deterio- general director, and a training pro- demand, the required experience, the rating role of pure allocation and initial cess for public officers with control and continuity of demand, confidentiality training of managing officials with the assessment functions. As it seems, the of techniques used by the administra- management of ‘competition courses’ role of training in the efficient develop- tion in the performance of its tasks. and similar training programmes obli- ment of public administration is again Take for example control activities and gatory for the career ? underestimated. The law does not pro- in general investigation of the fiscal or vide for an inherent rule for public offi- social plan, or simply the familiarity with Managers and civil servants in public cers’ training to accompany the process

public law required by the discipline of administration finally resort to self-trai- of reform of administration, which is urope regulation (for instance, this is the case ning through independent options as surprising especially amid the financial E with the competition for management far as the update, training and specia- crisis which requires the introduction in positions). lisation are concerned without homo- of more effective and efficient criteria genous development and sometimes of action. The current state of affairs is rather without verification of the coherence worrying as the only imperative ele- between the exercised functions and While programming the regulatory ment is the lawmaker’s willingness received training. reform of public administration, besides to change the fragmented system of the expected financial, economic, admi- public administration schools. Moreo- nistrative effects, the imperative if pro- ver, it has to do it in a situation where it fessionalisation and training should management

is incapable of imposing a project cal- also be taken into account as well as the ling for the establishment of a single programming of appropriate courses to school, strong and capable of making support the reforms: training is not only

the best of insufficient resources avai- a source of spending, but a real invest- ublic

lable for training. ment in human capital. For the system P Training is not only a source of of private businesses, this seems to be Nevertheless, there are some refe- obvious; for the system of public admi- 33 rence models in Europe. If one seeks ins- expenses, but real investment nistration – not yet. However, expe- piration from French ENA, one sees how in human capital. rience shows us that the demand for

university training systems and those training will go up when citizens seek Y

offered to lower-rank officials count quality public services and decision- D be integrated and could converge at makers in politics will not be able to the same school. The concentration of remain indifferent. resources finally makes the system efficient, despite the risk of establishing an abnormal centre of power.

There is no optimum solution valid for all countries, but certainly for the Recently (25 February 2009 AS n. 847- CASE STU current Italian system, which complains B), the Italian lawmaker passed a new about the lack of awareness of universi- law vesting the government with the ties as regards the training of managers competence to reform public admi- and public officials (but still they are nistration, namely as far as managers’ themselves a supplementary resource functions are concerned. However, this of the market) and about public admi- law remains silent as regards training. nistration schools in a profound crisis In fact, when it comes to managers, the and in search of their new identity, the principles laid down in the law of dele- risk (or the opportunity) of turning to gation of competence concern mostly the private market turns into a neces- autonomy and responsibility, discipli- sity. But, in this case, who controls the nary sanctions, evaluation of service, quality of training projects, their cor- the class action opposing public admi- rect implementation, the relevance of nistration, career development and costs, the subsequent profit? In these mobility of public officials, salaries and moments of transformation, is the state control over staff absences. The law-

European Review of Public Action EUROPA ASSOCIATION - ISSUE 1 – MAY 2010 34 CASE STUDY Public management in Europe Public management CASE STU CASE ROPEAN E Ministerial departments Public Management’. communities – was inspired by the ‘New regions, – entities federated and level federaltheimplemented reform atthe entity, to entity from realization and (OEC vices onevaluation of competences and ser- focus a with vision a of development management, HR of terms in petences com- operational of decentralization through the introduction of a mandate, servants civil senior the of accountability structure, organizational new a areas: four mostly concern reform this of trends major The cliché. a become has Belgium of administration public the in years 10 past the over blowing tences (justice, social affairs, finance…), mer are in charge of operational compe- for- The horizontal. 4 and vertical 10 – replaced by federal public services (FPS) u uropean federal public services – 10 ver- The idea that the wind of reform is is reform of wind the that idea The At the federal level, ministries were were ministries level, federal the At Ministries were replaced by tical and 4 horizontal.. R

R eview e D view Professor inpoliticalscience andadministration,director ofAssociation deputy Universitaire deRecherche surl'Action Publique (AURAP), , 2007). Varying in degree degree in Varying 2007). D Y

of o Management of public officers in Belgium f P

P ublic u blic A

A c ction tion implementation of policies the for not or entity legal a is agency the whether on depending – external internaloreither numerousagencies – as well as policy-making, of charge in department one includes and minister managementa theunderof is them of ded into 13 areas of public action. Each divi- is there administration the 2000; in structure matrix its up gave return, in Flanders, services. judicial gement, to deal with budget, logistics, HR mana- ones, transverse two and issues) fiscal energy, mobility, employment, ment, govern- local environment, and ture agricul- planning, territorial (budget, region the to granted competences ral: eight operational ones covering the directorates-gene- 10 comprised lonia senior civil servants Introduction of the mandate for managed by mandated civil servants. nal management is assigned to the FPS operatio- while decision-making, tegic stra- for responsible are associates her his/ and minister The implementation. and decision-making between ration new FPS structure is based on the sepa- ment, ICT, general coordination). and management control, HR manage- (budget FPS vertical over control and gic vision and/or support, coordination the latter are responsible for the strate- ‘low-ranking’ positions is given through ‘closed’ regime of careers: access to the a of country a as described is Belgium In 2008, the public services of Wal- of services public the 2008, In the department, the of level the At In comparative studies of civil service, . Catholic University ofLeuven, Louvain-la-Neuve, Belgium reference for the evaluation of his/her of evaluation the for reference mentletter managementora plan asa term of office, and presents an engage- porary statutory relation) for a five-year official is named (and hence is in a tem- The basis. contractual a to on moved relation this hierarchy-oriented, from ; minister and high-ranking civil servants pably changes the relation between the pal- mandate the of idea The munity. Walloon region and in the French com- ope- ning took place at a federal level, in the This experience. management with outsiders to from accessible on are now positions the highest-ranking of some Furthermore, renewed. be can office, which five-yearof term a for but time, indefinite of period an for longer any granted not are positions management : development career of regime this against blow double a the peak of the administrative pyramid. cants can pursue their career and reach a competition and only successful appli- longer granted for an indefinite The introduction of the mandate is is mandate the of introduction The Management positions are no year term of office, which can period of time, but for a five- be renewed. Christian de Christian VISSCHER EUROPA ASSOCIATION - ISSUE 1 – MAY – 1 2010 ISSUE - ASSOCIATION EUROPA CASE STUDY CASE STUDY

performance at the end of the mandate. The P&O FPS is also in charge of the of applicant rather than their diplomas The term of office can be suspended management of mandated manage- only. Civil servants’ self-development prior to its end in case of insufficient rial civil servants. The new P&O direc- is encouraged namely by training and results. The minister carries out a more torates at the vertical public services promotion of mobility. It always bumps detailed evaluation at the end of the have the following task: staff recruit- into discord between the federal and term of office. Apart from the enhanced ment following a selection procedure other authorities in the organisation accountability of managerial officials, carried out by the SELOR; welcoming between these bodies. The remunera- there are plans for relaxing rules for and integration of new staff members, tion and re-evaluation of civil servants administrative and budgetary control training, evaluation of career deve- has a large share in the content of the (which has not been approved yet under lopment, remuneration management; position, assumed responsibilities and the pressure of the opposition of politi- support of the evaluation process and implemented services.

cians and inspectorates). more generally any process of change as urope regards staff policy at the department. E This enumeration of the tasks of the P&O in directorates shows the shift from single The major criticism of OECD (OECD, D ecentralisation of HR compe- management to a more balanced distri- 2007) concerned ministerial cabinets. tences bution between horizontal services and The presence of numerous experts at departments. the cabinets with poorly defined res- The third axis of reform has taken ponsibilities as borderline cases of poli- place only in the Flemish community tics and administration, runs counter to and at the federal level. At the federal the measures undertaken for the past the responsibility of HR management Taking into account compe- decade for the strengthening of the management is divided between the new horizontal tences and evaluation of offi- managerial responsibility of senior civil public service for personnel and orga- cials’ performance servants. Some express concerns that nisation (P&O FPS), which succeeds this situation can hardly change in the

to the former Ministry of Civil Service Straying gradually from the criteria near future as political parties frown at ublic

and the P&O directorates established of diplomas and ‘work-derived expe- the idea of downsizing ministerial cabi- P at every federal public service (the new rience’, that is the length of service at nets, which facilitate their influence over name for ministries). The latter ensure the administration, in the 1990s career the political and administrative system. 35 the operational HR management for management took an unambiguous Moreover, Belgian senior civil servants their employees, the horizontal service turn: the emphasis everywhere is put have insufficient reflexes in the defence

is involved in common policy-making in on competence management, even of their interests, unlike the networks Y

the various fields and the management though behind this general term are established by large bodies in France. D of shared services, the Federal Agency hidden different realities depending on for Civil Servants’ Selection (SELOR) and the entity. Also, the structure of ranks training institute IFA. and positions was reviewed everywhere for the purpose of better alignment with the labour market and identification of professions and fields of expertise on demand. Meanwhile, the administrations seek to promote expert positions CASE STU in order to preserve competences within the organisation. Belgian senior civil servants The federal public service replaced the have insufficient reflexes in idea of ranking at the A level (university) the defence of their interests, with the notions of class and profession unlike the networks esta- specialisation. They describe a group of relevant positions of the same field of Bibliographie : blished by large bodies in Odile Daurmont & Véronique Schmitz, expertise. Moreover, the civil service fra- « L’évolution de la carrière des fonctionnaires France. mework of the Walloon region identifies belges », Administration publique, 2005, tome the professions corresponding to the 3-4, pp. 259-269. positions (Daurmont & Schmitz, 2005). OECD Reviews of Human Resources Mana- gement in Government. Belgium: Federal In line with the same logic, the selec- Government, Flemish Government, French tion and recruitment procedures were Community, Brussels-Capital Region, Walloon adapted to take into account to a better Region. Paris, OECD, 2007. extent the competences and aptitude

European Review of Public Action EUROPA ASSOCIATION - ISSUE 1 – MAY 2010 36 CASE STUDY Public management in Europe Public officers’ training Public management in Europe CASE STU CASE ROPEAN E the concept of of concept the emerges all, Above service. public rial territo- the of specificities inherent the preserving while systems training nal vocatio- of harmonisation the enables service.Itcivil state the grantedto and servants, civil European for those with new rules of the labour code, compliant tem, to a large extent influenced by the sys- training vocational new a triggers ning the territorial civil service. concer- 2007 February 19 of 2007-209 No Act law, a of shape the tookreform This 2006.November in launchedtion, administra- central the of service civil the of example the followed it quently subse- 2004; of laws the and 2003 of agreement inter-professional the by initiated sector, private the of ment develop- continuing the by inspired was all of first service public territorial the reform, this elaborate To servants. rities, as well as the expectations of civil tation of their employer, the local autho- territorial officials in line with the expec- mentationnewtrainingaof system for the individual right to training is on the of use The hours. 120 of ceiling a with years 6 for cumulative year, a training of hours 20 to rightindividual an from everyon,officialFromnow will benefit training. to right individual an duced intro- reform legislative this – training means of various provisions and tools. training training u uropean From a global perspective, this law law this perspective, global a From Introduction of an individualto rightanIntroduction of In 2005 appeared the idea of imple- of idea the appeared 2005 In as regardsas life-long training by R

R eview e view D Y

of o initial and continuing continuing and initial Reform relating to the right to training at territorial public service f P

P ublic u blic A

A c ction tion RNET ClaireC – since the law of 19 February 2007, per- French concept. which seems to originate from a training, Franco- obligatory of period a retain to necessity the in believes lawmaker the territorial fact, officials.of tencesIn nance and development of the compe- mainte-guaranteetheto desire the by longtraining eventhoughjustified is it life- from distant rather be to appears wholethecareerfornedduration. This periodsor professionalisation are plan- service; likewise, the obligatory training public the to relevant values of tance impor- the recruitment upon conveys reasons.First ofall, integration training the career, but it remains for two major downsized form distributed throughout a in existsobligatory training.It of tion reduc- the also concerns reform this – 50% of the hourly wage. official a training sum corresponding to territorialtheauthority theallocates to hours,working outside place takes it If hours’. working during exercised tially dual right to training ‘can be fully or indivi- par- the whether decides employer nion of a technical joint committee, the opi- the to According exams. fessional pro- and competitions for preparation for training or improvementhis/her to relevantbetraining tohaveaandplan in included are attend to chooses she cise this right if the training courses he/ with the employer. The agreement official in can exer- official the of initiative The establishment of training records training obligatory of reduction The o , f ormer deputy director general oftheNational deputy Centreormer for Territorial (CNFPT) Civil Service local public action. and employers of logic the and logic individual and collective logic or career to guarantee the new balance between also meant is system new The service. even the statute of the territorial public as well as human resource management system training vocational the change should in the medium term profoundly sation training. professionali- or integration statutory obligatory from exemption for cation for transfer or secondment and an appli- applicationan rank; inprogress or tion on the aptitude list, via internal promo- experience for the purpose of inclusion her professional merits and professional her record in case of: assessment of his/ nal interviews. The official can show his/ professio- or competences to relevant references possible employment, of certificates certificates, internship and training certificates; qualification and diplomas titles, of copies enclosures: as includes record training individual The aptitude. and competences sional profes- knowledge, experience, work tion and level, internships, tutorials, etc, continuing vocational the training, training dates, dura- during and exemptions taken courses training tificates, cer- qualification and to diplomas titles, reference information: following the namely includes record The path. career and career in his/her it throughout fills who official the to belongs latter The record. training individual an authority the from receives not, or tenure in it be members, staff manent Finally, the law of 19 February 2007 2007 February 19 of law the Finally, EUROPA ASSOCIATION - ISSUE 1 – MAY – 1 2010 ISSUE - ASSOCIATION EUROPA CASE STUDY CASE STUDY

FOCUS Training and evaluation: two key elements of human resource management

José RUANO Professor in Administration Studies, Complutense University of Madrid urope E From the perspective of public This situation is not surprising if obligation and on the basis of the fact in administrations, continuing training of we consider the short-term perspec- that staff training policies have to be the staff is an indispensable necessity tive adopted by each administration a fundamental instrument of HR poli- for the provision of modern and effi- and the state administration’s gra- cies, in relation to the development of cient public services. In fact, no doubt dual renouncement to play a role in officials’ career and position, to such training leads to the improvement of the structuring and articulation of the an extent that it becomes a process of staff productivity and the organisation public service system. continuous improvement. as a whole. However, no administration can management

The Spanish Constitution obliges function properly if it does not have a public authorities to promote policies suitable strategy for human resource ensuring professional training and management and instruments for

readaptation (Article 40, paragraph its implementation. The transforma- ublic

2). In this context, public administration of training policy into a process P tions of a certain size have generously of continuous improvement requires encouraged and funded training acti- instruments for needs detection and 37 vities for their staff, which involved The transformation of the evaluation in order to measure its the establishment of institutions and training policy in the process impact on the performance. In fact, schools or signing of agreements on of continuous improvement the Spanish municipal structure is very Y

cooperation with trade unions, private weak, characterised by the existence D businesses or universities. Hence, we requires tools of needs detec- of municipalities incapable of plan- can say that administrations are aware tion and evaluation. ning or of managing their own human of the importance of training poli- resources. This factor would justify in cies. Nevertheless, doubts surround its own right the coordinated action the degree of optimisation of used of the state and the autonomous com- resources: in general training is offe- munities in terms of training. However, red in an uncoordinated way by public the absence of cooperation is attribu- institutions operating in the same sec- ted to the difference in the relevant CASE STU tor; often training programmes are needs of each administration. planned without taking into account the real training needs of the recipient Despite the close relation between organisations and without relating training and re-evaluation of staff this policy to the HR strategic plan- On the contrary, the system configu- performance, the statute focuses – ning. Furthermore, a number of muni- ration and adoption of coordination in a rather general and isolated way, cipalities do not have the necessary measures are subject to negotiations though – on evaluation instruments. capacity to develop staff policy and a within the respective sector dialogue. Up to now evaluation was not part centralised general information sys- This is in line with the negligence of of Spanish administrative culture, tem is not available for all public admi- training in the statute to date. This although some sectors and adminis- nistrations in order to clarify the real gap, justified by the idea that training trations boasted of lasting interesting situation of employment in the public lies within the exclusive competences experience. In particular, the statute sector in Spain, to make analysis of the of each administration, is particular- highlights the importance of evalua- shortcomings and to adopt suitable ly serious if we consider it simulta- tion tools adapted to the principles solutions. neously as the employee’s right and of transparency, impartiality and non-

European Review of Public Action EUROPA ASSOCIATION - ISSUE 1 – MAY 2010 38 CASE STUDY Public management in Europe Public officers’ training CASE STU CASE ROPEAN E u uropean organisation) and for evaluation ins- evaluation for and organisation) the of climate the to detrimental stressful and more (much tools luation eva- individual for both acceptable perfectly be will it so, do to case; the on depending suitable evaluation of type the to refer not does statute the Secondly, guidance. general of form lop the provisions of the statute in the deve- and assume to one the be will lawmaker regional the so, necessary, if nature, non-binding general of only are statute the of proposals the we have to turn to several weaknesses: officers, public for measures luation eva- performance of introduction the job. the vationof tivity-based bonuses and even preser- produc- of allocation the promotion, official’s to it link to and evaluation law starts to regulate the performance the service. In conclusion, the Spanish towards attitude their account into taking without way same the rybody and it is counter-efficientto treat eve- fair be will this as organisation, the of targets the and performance his/her to linked be to have employee every for rewards possible the and hierarchy the in up climbing for tunities for wayjob life.their to keep not perform their tasks in a satisfactory unacceptable for civil servants who do socially is it that opinion shared a of realisation a and change qualitative unprecedented an is competence nal professio- insufficient of because job his/her lose may servant civil a that – ty -- outside the practical effectiveness performance. The theoretical possibili- the of evaluation positive a of case in at work, position in the continuity the received by public officers and even to time to additional remuneration to be discrimination, and related for the first After After recognising the advantages of oppor- the out sets it Meanwhile, R

R eview e view D Y

of o f P

P ublic u blic A

A c ction tion privileged over length-of-service crite- be to tends system merit The tration. adminis- modern conduct with of incompatible sanction and neration vation in terms of progress and remu- moti- of measures authentic promote will and obsolete, become have that procedures traditional to back which goes provision a enforce will tion would evaluation fail. performance with dealing management HR them, Without administrations. small-sized they do not exist simply in a number of and improvised be cannot capacities These staff. managerial committed and qualified and services, experts technical evaluate to instruments indicators, performance systems, ting goal-set- building: capacity internal significant requires eva- systems good luation of implementation the truments of working groups or teams. At the end of the day, the evalua- the day, the of end the At training, staff to Moreover, similarly The implementation of good evaluation systems requires significant internal capacity building. tration and its relations with citizens.relations its with trationand adminis- public the of transformation in-depth an enabling without nature, in theoretical mostly impact, an only have may contrary, the on measures, These organisation. the within sion ten- strong to rise give to inclined are but performance management and transparency favour will they fact, in : willing to introduce these instruments be would managers HR extent what accountability.’ of lack privileging hierarchy, random of rejection the and rationality legal formalism-oriented on based statute the with incompatible ‘is says, vallier Che- Jacques as requirement, double This officers. subordinate their of rs caree- the managing for officials the of responsibility the results, their on depending sanctions or rewards to subject officials’thus careers, of ation ment presupposes a strong differenti- manage- resource human in reform authentic An logic. bureaucratic ling to be little compatible with the prevai- seem reformsHowever, mance. these perfor- objective to pay additional of part linking and unit or position each performance evaluation indicators for implies the implementation of a set of which mechanisms, promotion in ria Meanwhile, we still do not know to know not do still we Meanwhile, FOCUS EUROPA ASSOCIATION - ISSUE 1 – MAY – 1 2010 ISSUE - ASSOCIATION EUROPA CASE STUDY CASE STUDY

Training driven by the employee’s initiative in Sweden

Kerstin KOLAM Associate Professor in Political Science, Umea University, Sweden

1. Introduction widespread majors are political science implementation takes place in an atmos- and economy. Law and statistics are also phere of mutual interest and consensus. Civil servants in Sweden can have dif- often included in obligatory courses. ferent university background. There is Some universities include also sociolo-

no specific academic programme, or gy, economic and social geography and urope specialised institution with targeted public management. 3. Internal training E curriculum for jobs in the public sec- in tor. Meanwhile, some public authorities A number of public authorities offer have their own internal training cycles preparatory training upon appointment. for young graduates. The only require- Apart from the programmes named Government services (integrated autho- ment is a university degree – sometimes PA, a number of others offer public rities including the offices of the Prime in a specific field – for instance, a degree administration courses. The social work Minister, ministers, the service of admi- in social studies, depending on the job programme includes courses in politi- nistrative affairs) organise a diplomacy description of the future position. No cal science, law, and public economics. programme every autumn. The appli- requirements, and hence little regula- Similar are the environmental health cants have to be BA degree holders and management

tion, are set down as regards the content programme for health inspectors and successful candidates obtain training as of the university programme. Excep- well as an internship (12 people were tions are made for education leading hired in 2007). They are employed by the

to an authorisation to practice. Some government services and receive remu- ublic

30 professions are regulated by the law; neration for the four months of their trai- P dentists, doctors, nurses, accountants, ning. The national railway company also psychologists and rescue service heads, offers training upon appointment for 39 etc. A large number of these professio- some of its specialised staff (train drivers, nals are trained at higher-education ins- ticket inspectors, attendants, etc).

titutions, and their programmes are not A number of public authorities Y

necessarily identical. offer preparatory training upon D appointment . 4. Continuing education

2. Initial training In the world of work, the right to continuing education is not a general and Initial vocational training is mostly formal obligation. But public and private within the competences of higher-edu- sector employers are more and more cation institutions. The majority of those involved in it. It can be introduced, for CASE STU universities are state-run, but some are example, in case of changes in the law private, regional or university colleges. A the human resource management pro- requiring specific competences or qua- great deal of their programmes, mainly gramme. lifications for public service providers in in social science, intend to train public the said field. The training in ‘leadership’ sector employees. The choice of a uni- skills is required everywhere. versity or degree programme does not limit the student’s choice of job (public, Higher education is highly decen- private, liberal) after graduation as some tralised. Universities decide on their programmes are rather general, such as own on the general content of the pro- Take for example the training of those in public administration (PA). grammes. All departments related to a middle-management officials in the programme have also a lot of freedom police. The national police distinguishes in terms of specialised courses, although three levels of command: central, inter- planning and negotiations usually take mediate and local levels. The police Most often this is considered a branch place at the programme’s administration conducts internal training for central- of political science. PA programmes councils, where all relevant departments level officers. Normally local-level heads focus on public administration. The most are members. Programme planning and are trained by private consultancies. The

European Review of Public Action EUROPA ASSOCIATION - ISSUE 1 – MAY 2010 40 CASE STUDY Public management in Europe Public officers’ training issues. only at universities and focuses on legal provided obligatory, be should chers tea- head of training the that suggests report government A choice. trainers’ on dependtargets the attain to means contracts. It defines the content but the statenegotiatescentressignswithand teachers. Throughhead a national former agency the and lecturers university time same the at are who people with universities,withcontact in centres are Often, centre. development teachers’ a has area regional Every curriculum. certain requires state the but optional, similar. is teachers head school of is training The administrations local and regional in situation the but level, tral programme. training comprehensive a than rather competences special just provide ties universi- often More departments. sity univer-specialisedcooperationwith in tions often provide training; sometimes administra- State increase. needs cific regional and local level will go up as spe- but the numberunit, of courses organised at training central a is There nees. theneed for training andpotential trai- identifies director general the Namely to go through training on a regular basis. categoriesstaff,of such judges,as have Some training. and development staff on work to partly is mission Its issues. common of coordination general the for responsible agency governmental nationaladministration tribunalsa ofis pedagogy and law. The courses taught are political science, universities. by trained always is – cers thirdintermediate-levellevelthe– offi- CASE STU CASE ROPEAN E u uropean These examples come from the cen- the from come examples These Anotherjudiciary.theexampleis The Training driven by the employee’s initiative in Sweden R

R eview e view D Y

of o f P

P ublic u blic A

A c ction tion 5. Other training options caters for personalised competences. competences. personalised for caters publicprivatebothandandmarket – – labour the with cooperation close in organised is programme training The knowledge. of level equivalent an or training secondary of curriculum sive comprehen-a candidatesiseligible for market’.labour requirement theThe in meet the current needs for competences The KY offers ‘post-secondary(KY). training to Education Vocational Advanced for Agency Swedish the body, mental ter have to stick to the national curricula. schoolsrunprivateandlat- the asones teachers head at schoolsof concerns bothtraining state- the So fully. or tially par- either privatised, been have vices ser- public of number a as exceptions employees.publicmostlythereare But In 2002 was established a govern- a established was 2002 In Training-related provisions concern concern provisions Training-related for competences in the labour governmental body, the Swe- Vocational Education (…), set up to meet the current needs dish Agency for Advanced In 2002 was established a market. 6. Funding of training tion (EVTA). Associa- Training Vocational European of part is Lernia NGOs. and nistrations, public employers, including local admi- and private are customers Its services. other among people, employed unemployed or for training qualified professional provides It 14001. ISO and 9001 ISO under certified is and ment govern- the of part is Lernia cement”. areas of staffing, education, main skills the enhan- in organisations and panies trainingLernia,iswhich ‘supportscom- tutional form of education. insti- an in programmesthese tructure upgrade this type of training and to res- to is goal major The 2009. in institutes vocationalup set to governmentplans after obtaining the diploma. The current 80% are hired or start their own business complete the training course and some tive field. Annually, some 30,000 people involvement of the specialists in theensure respec- to is goal The authorities. educationaland college a oruniversity a employers, of representatives ding is inclu-groupmanagement a by guided course Every body. governmental Theremaining costs are covered by the employers. by remunerated cements pla- is that internship, in-house the is An important aspect of the programme However, people are not used to taking course participants do not pay anything. credits, academic giving programmes ded by a university and is part of regular dents and others. If the training is provi- stu- regular for both charge, of free is studies, university The including lot. training, a varies sector public the in Another major player in vocational vocational in player major Another The funding of employees’ training training employees’ of funding The EUROPA ASSOCIATION - ISSUE 1 – MAY – 1 2010 ISSUE - ASSOCIATION EUROPA CASE STUDY CASE STUDY

continuing education. Some 20 univer- tatives implemented at the workplace sities and colleges provide contractual can obtain financial support. The local training for companies, organisations development activities can include the and national and international autho- improvement of labour organisation, rities. The National Agency for Higher development of qualifications, parti- Education requires the signing of a cipant and cooperation, leadership, contract between the parties. work environment, diversity, ethics and gender issues, efficiency and quality of In many cases, the employee activities or training of employees’. The has to be proactive. programme of the major educational The fee has to cover the costs (trai- institutions was assigned by the state ners’ pay, training materials, premises and the local authority.

and equipment), but cannot generate urope profit for the training provider. E in Conditions offered to individual participants vary in other types of programmes. In some cases, costs are The same applies to the new pro- entirely covered by the employer, in gramme launched for head teachers. other - only a part of the costs are The use of this technique is easy as, covered, while sometimes no costs are according to a report of the World Inter- reimbursed. Everything depends of net Institute, 78% of the Swedish had the employer’s policy and the negotia- internet access at home in 2007. management

The funding of employees’ trai- tions between the employee and the ning in the public sector varies employer. a lot. 8. Conclusion ublic P Apart from higher-education institu- Civil servants’ training is pluralistic. tions, private consultancies also provide There are no specific regulations, few 41 training. specific programmes and no specific institutes involved in training. In many

cases, the employee has to be proac- Y

If the training is obligatory, the tive. Amid financial difficulties, it can D employer pays for it or can obtain 7. New methods of training be difficult to convince the employer funding from available government organisation of the need for individual professional resources. If the employee takes the ini- development and to explain the advan- tiative, the conditions can be various. D istance internship is an important tages for an organisation whose the The employer and the employee priority for most universities. It appeared workforce is properly trained. The high- reach an agreement on the training 30 years ago. There is a constant demand ly-qualified workforce is a priceless asset needs during an annual interview on from students and trainees, as well as for an employer, but this requires costs. the employee’s professional develop- from employers as participants do not The point is to know whether short-term CASE STU ment. In this case, the employer can have to be absent from work, at least for costs exceed long-term effects. pay. Under a third option the employee long periods of time. Hence, there are signs a training contract and pays for plans for online training for a large part it, without involving the employer. The of the programme for middle-manage- website of the Council for Improvement ment officers in the police. of the Administration gives information on the funding: ‘The joint projects of http://www.lernia.se/OmLernia/AboutLer- employers and trade union represen- nia.asp

European Review of Public Action EUROPA ASSOCIATION - ISSUE 1 – MAY 2010 42 CASE STUDY Public management in Europe Public officers’ training CASE STU CASE ROPEAN E vice via recruitment procedures based proceduresrecruitment via vice ser- public professional really a build to idea the is consideration under But servants. civil not are administrations local at staff the ofmajority the as well as functions qualified less or technical performing employees Public holders. degree university and staff nistrative Saxon model, it is confined to the admi- job than a career. Inspired by the Anglo- courses and refresher courses. training and Article 29 refers to training refresher to refers 19 Article servants: civil of training the briefly regulates it passed; been not has bill new the as tive from 1 January 1994, is still in force, the Orange Revolution. bitation’ within the same party that won ‘coha- fighting of sort some are in – ter Minis-PresidentPrimeexecutiveand– the of branches two The republic. tary the system – presidential or parliamen- of type the on agreement an reached tution continue and politicians have not consti- Ukrainian the to amendments But judicial. and executive legislative, a clear-cut division of the three powers: nian political system is democratic with Ukrai- the Nowadays, 1920s. early the in Union Soviet the of Republic a into twoworld wars. Ukraine rapidly turned the between independent were but they USSR, former the of part were -- members2004statessinceEU states -- Baltic The service. civil the in present still is which USSR, former of culture bureaucratic soviet the transform to generation a than more takes it and years 17 barely for state independent an been has Ukraine system. training the context to understand civil servants’ u uropean Public service in Ukraine is more of a of more isUkraine inservice Public The Civil Service Act in Ukraine, effec- of aspects some at look to need We R

R eview e view D Y

of o management and good democratic governanceThe training of civil servants in Ukraine: human resource f P

P ublic u blic M inistry ofInterior,inistry Overseas Territories and Territorial Authorities, Secretariat Generalincharge ofadministrative cooperation A

A c ction tion Vira T. former headoftheNational NANIVSKA, Academy ofPublic Administration at thePresidency ofUkraine National Academy of Public Administra- OEC by out carried assessment governance the in highlighted was as – stake at really is nance.The quality ofthe public service gover- democratic good of and ment a problem of human resource manage- directly to the public. Hence the issue is quality service to their administration or thattheywillofficestayin provideand ensure to also but tasks, their forming per- of capable are servants civil new that guarantee to only not issue, key a enormous turnover. fessionalprospects which–leads an to pro- offered the with satisfied not are they because but dismissal of because not – departure a with finishes period civil servant. But for many the probation arrived newly the by given vow the is administration, central the at least at tory training. The only visible procedure, appointment it does not include obliga- the after and exams, national through rently,recruitmentplacetake notdoes Cur- contract. and commitment term long- schools, with competitions, on In this context, training has turned into more of a job than a career. Public service in Ukraine is D /SIGMA, presented at the at presented /SIGMA, anddecentralized civil servants are not trict, the government. Hence dispersed dis- the in representations state the of staff the on rely and power little have councils district and authorities torial terri- of level low of establishment the tion on 5 July 2006, which insists on professionalism and political neutra- political and professionalism local administration. central,regionalor servantsof civilthe between distinction a make not does bill The schools. training or specialised officials middle-management for for senior civil servants or IRA or ENACT INET or ENA as suchschools at courses pass a competition and to take training topublic service,hastheone access to recruitment like in France, where toand gain training vocational between tion rela- a establish not does bill the But programme. training individual vants’ articles ser- civil and training vocational Two detail training. vocational or education continuing training, initial between distinction a make trai- and to ning refer therein articles Act. Several Service Civil new a drafted was lity of the public service: and essential essential and service: public the of lity change should include the establish- the include should change ment of a professional public service, service, public professional a of ment politically neutral and capable of deve- of capable and neutral politically loping and coordinating effectively effectively coordinating and loping policy implementation. In particular, it it particular, In implementation. policy is necessary to introduce a procedure procedure a introduce to necessary is for nomination and promotion based based promotion and nomination for on competition, making impossible impossible making competition, on the dismissal of civil servants on the the on servants civil of dismissal the grounds of their political opinions and and opinions political their of grounds other subjective factors. […] It is neces- is It […] factors. subjective other sary to introduce a mechanism of regu- of mechanism a introduce to sary lar obligatory strengthening of civil civil of strengthening obligatory lar servants’ professional capacities.’ professional servants’ D 2005 in challenge, this of face the In e centralization has so far led to to led far so has centralization Anne AZAM-PRA D EILLES, “the “the EUROPA ASSOCIATION - ISSUE 1 – MAY – 1 2010 ISSUE - ASSOCIATION EUROPA CASE STUDY CASE STUDY

clearly identified – even though some established a training centre. The MDCS additional missions change. Therefore, has a decentralised service in every dis- there is just one single multi-faceted trict and a training centre, except for in training system for civil servants. the 4 areas where the regional institutes are located. In the process of the reform, The National Academy of Public Admi- the Academy has organised numerous nistration (NAPA) was set up after the Therefore, there is just one meetings with training centres. As civil independence as a central institution. Its servants are not recruited by a school, name speaks for its ambitions, which is single multi-faceted training universities also play an important role explicitly academic. And education and system for civil servants. in their initial and continuing training. research have been its most important

tasks for a long time. On 2 June 2006, For the purpose of maximum harmo- urope the President of Ukraine passed Decree nisation with EU standards and transfor- E No 474/2006 concerning the improve- mation into an administration school, in ment of the Academy […], guarantee in 2007 the Academy asked the Dele- of its leadership role in the process of gation of the European Commission for modernisation of the national initial and twinning with a member state for the continuing training system and the pro- president. A video-conference system benefit of a transfer of expertise2. Hence, fessional development of civil servants connects them every week to follow the the training of civil servants in Ukraine and local authorities staffand appointed progress of the reform. There are no for- has reached a transition phase. However Vira T. NANIVSKA President in order to mal differences in the training provided – although the political situation does transform the academy into a training by the five institutions but Kiev seems to not facilitate the reform, the interna- management

school. In order to work out the new deal with the high-ranking civil servants tional support provides not only a bila- concept, the president launched a natio- – which does not prevent thousands of teral basis (France, Germany, Canada, nal debate based on 8 questions1. In graduates of the institutes to find a job Switzerland, Denmark, Latvia, Poland,

March 2007, the concept was presented in prestigious central administrations. Ireland, Greece, Sweden, Norway, the ublic

along with a road map. The most striking After receiving the diploma and once UK, etc), but it exists also on a multi- P element of the analysis is: barely 6% of hired, numerous civil servants continue lateral basis, the EU Neighbourhood the budget is allocated for training, the their studies and thousands pursue a Policy, OECD/SIGMA, the World Bank, 43 rest goes for education and research. PhD degree. etc., which provides now Ukraine with a The major objective is to strengthen reliable road map – which is to be imple-

continuing training and enhance voca- The Main Department of Civil Service mented ! Y

tional training, namely through practi- (MDCS) in Kiev is the central administra- D tioner trainers. This will also increase the tion for management of the public ser- importance of internships. vice, assisted by the Centre for Support of Civil Service Institutional Develop- The academy is a network of four ment, now called Centre for Adaptation regional public administration institutes of the Civil Service to the Standards of : Kiev in the western part, Odessa in the the European Union. The Centre houses southwest, Kharkiv and Dnipropetrosk the Programme Administration Office in the east; at the head of each insti- (PAO) for twinning projects and with CASE STU tute there is a director reporting to the international assistance the MDCS has

1- The 8 questions are : 1- What are the major problems of public administration in Ukraine in the transition to democracy? 2-What professional skills and expertise for work in a democratic environment do Academy graduates lack? 3-What should be the goals and results from the Academy’s activities for solving public administration issues? 4-What do you think are the major characteristics of the ‘ideal’ Academy? What do you want the Academy to be like after its reform? 5-What problems do you identify at the Academy as a training institution? 6-What are the roots of these problems? 7-What decisions and measures are to be taken to deal with those causes? 8-What would you personally (your department, your faculty, etc) add to the reform and do to implement those changes ?

2- Twinning CfPs EuropeAid/127748/L/ACT/UA Support to the development and improvement of the civil servants training system in Ukraine/Twin- ning project UA08/ENP-PCA/OT/14. French ENA in cooperation with Polish KSAP were selected for the twinning in 2009-2011.

European Review of Public Action EUROPA ASSOCIATION - ISSUE 1 – MAY 2010 44 CASE STUDY Public management in Europe Public officers’ career path Public management in Europe CASE STU CASE ROPEAN E mobility of officials are a visible trend, visible a are officials of mobility enhancedthe nistrativestructuresand ciate the progress within the two trends ? criteria to be taken into account tothe are Whichpositions?appre- of succession the by guaranteed professionalisation experiencethroughgainedmobilityor – competence of source reliable most the is Which another? to one from fer transfor strategies and types specific priate principle in the public sector. appro- most the identified as always is private sector whereas recommendation petition seems to be more suitable in the nature of public the employmentregards as itself. competition Com- in always ensureto quality, thesetwo models are whichbecomeslitywidespread. Meant tive models under the pressure of mobi- administra- European of development the of comparison the for useful be to objective. considered criteria, external through evaluated performance of idea the on path,the consideration of results is built contrary,in competition-oriented career the On authorities.professional or tive goal is the confidence of the administra- nismsrecommendation,of thepursued careerpathdevelops under themecha- secondrelies oncompetition. When the The recommendation. of principle the on based is first The trends. different vices.Promotion generalin follows two ser- provided of quality and efficiency tests of skills, evaluated according to the Europeoftenpresentedisseries ofa as u uropean The increase in the number of admi- of numberthe inincrease The Howcan we compare the two equally seems distinction general quite This in officers public of path career The R

R eview e view D Y

of o In-depth competence in the face of mobility f P

P ublic u blic A

A c ction tion and Eastern Europe, the former adminis- of European integration policy. In Central modelswereconfronted contextthein two these Europe, Eastern and Central to mobility. statutoryobstaclesofremoval the and performance, responsibility, assuming encouragementaroundalsothebut of workingconditions tocareer extension, the of adaptation training, life-long vocational competitions, recruitment around organised is countries western That is why the career path of officials in sector. private the in sought efficiency tration become increasingly closer to the organisationwithinpublicthe adminis- and public, crisscross. The modes of work fessional career. The two models, private pro- the ofstability andsecurity the of the competition model to the detriment strengthens employees of movement observed almost everywhere in Europe. Performance evaluation carried based criteria creates problems Following the enlargement towards towards enlargement the Following The opening of the EU towards the free while pushing ahead develop- out according to competition- P h D , P ment. rofessor inSociology, D epar tment ofPolitical Science, University NewBulgarian tence enriched through mobility. gement policy, oriented towards compe- mana- resource human the of renewal of need strong a is theredemand, and supply the with familiar get to and ty ments of the two models. careertypeofpath, combining ele-the model of administration develops a third tableprofessionalisation. EuropeanThe length of service, often related to an uns- tical and horizontal mobility, rather short competition system goes through a ver- a withinhappening path career the ry, functionaland changes.contra-the On structuralregards as rigiditycertain by focalisedprofessionalisation,as well as experience, work continuing mobility, tion, are characterised mostly by verticalrecommenda- of mechanisms the on cers in Europe. Career paths, dependent mance in the career paths of public offi- perfor- ofquality andprogress of pace the of evaluation the enables lopment currentlymentswhichareunderdeve- pushing ahead development. petitioncriteria creates problems, while com- to according out carried luation, performancerooted,eva-deeplyquite tern Europe, where this tradition Eas- remainsand Central in present, At loyalty. qualityisalways dependent onpolitical mendation,theesteemperformance of recom-ideologicalof principlethe ted suppor- which model, administrative on an ideological basis. In the totalitarian the western tradition, have transformed of those with identical models, trative D r Antoniy GALABOV, Professeur enSociologie, o vi te btce t mobili- to obstacles the avoid To Finally,theidentification of some ele- EUROPA ASSOCIATION - ISSUE 1 – MAY – 1 2010 ISSUE - ASSOCIATION EUROPA CASE STUDY CASE STUDY

FOCUS D ifficulties in promotion and inter-administrative mobility of public officers in Spain

José RUANO Professor in Administration Studies, Complutense University of Madrid urope E No doubt good career prospects ments, which enable civil servants to service in Spain, which makes officials’ in boost performance and productivity make progress and consolidate their mobility between administrations of public officers and, hence, the effi- positioning in the organisation without extremely difficult. ciency of administration. Currently, the changing the work position. Naturally, promotion of civil servants takes place the horizontal promotion is also related The co-existence of different remu- through gradual occupation of different to a positive performance evaluation, neration systems for the same type positions, which enables the consolida- entitling to formal recognition of pro- of civil servants and contract agents tion of employees’ individual levels. This motion and rise in the corresponding (privileged by trade union initiatives at model provokes a number of criticisms: pay. Meanwhile, as far as contract agents each administration) or the possibility management

on the one hand, there is a gap between are concerned, the solution is less ori- based on the principle of self-organi- the structure of work positions, whose ginal: economic promotion is directly sation of introducing systems of mana- characteristics and occupation periods related to conditions and requirements, gement and organisation for various

are defined by the administration, and which result from collective agreements work positions create obstacles diffi- ublic

the mechanisms of promotion, which cult to overcome for inter-administra- P depends on the official’s personal inte- tive mobility. rest in professional and economic deve- 45 lopment in return for his/her efforts. This We are not eager to recognise that discrepancy obliges the civil servant to The establishment of organi- in senior civil service, trade unions and

change positions to advance, but in case elected officials, the resistance to coor- Y sational structures is subject

there are no vacancies at his/her unit, dination and mobility has corporate D he/she has to move to other services in to not very rational criteria. origins. The tour d'horizon is a dual sys- the organisation which do not corres- tem where a group of administrations pond so much to his/her qualification shares common features of public ser- and training. On the other hand, the rela- vice in the face of a minority sector, tion between economic promotion and for which mobility is not high on the job positions leads to the artificial crea- agenda, and which seeks deliberately tion of identical posts only to meet the although in most cases working condi- differentiated models to impede pos- economic needs of officials whom the tions of civil servants serve as a reference sibilities of interaction with the rest of CASE STU organisation wants to retain. Again we model in negotiations. the administrations. can see how the establishment of organisational structures is subject to not There are major difficulties in ensu- Naively, the statue shows good will very rational criteria. Hence, the career ring inter-administrative mobility of for the organisational flexibility to system limits promotional opportunities the staff. The priority of the principle be offset by the call for cooperation of civil servants, in particular A grade civil of self-organisation of every region between the state and the regions servants, provided that it is possible to implies that it is perfectly possible within the dialogue in the sector. On reach relatively early one’s maximum for every territorial administration to the contrary, experience shows us that personal level. This problem is particu- choose its own model distant from the these mechanisms are insufficient in larly salient in the case of local authori- model of state administration because the absence of political will for coordi- ties, where the structure of positions is of functional and management diffe- nation and awareness of belonging to even more limited. rences. As a consequence of the prio- a common political and administrative rity of the principle of organisational system. To solve this issue, the staff statute flexibility, appears the progressive offers ‘horizontal promotion’ instru- territorial fragmentation of the public

European Review of Public Action EUROPA ASSOCIATION - ISSUE 1 – MAY 2010 46 CASE STUDY Public management in Europe Public officers’ career path CASE STU CASE ROPEAN E position (hence, the job description). work experience), and the other and – to the qualification official’s the (hence grade the to related be will elements the of one which in regime, neration on remu- and officials’ of reconfiguration the development, career cial’s offi- the of element key a evaluation, by rating of replacement the Internet, tation of a ‘public labour market’ on the of recruitment practices, the implemen- concern namely the professionalisation proposals Other management. service civil of improvement and bodies dred hun- several on based segmentation current the replace will whichlisations specia- major seven with service’ civil ‘profession-oriented towards lopment the drafting of a charter namely of values, deve- suggests It France. for assets public services and the civil service into turn to proposals 40 and trends tegic stra- six formulates Paper White This release of a white paper by J.L Sillicani the upon touched and unfolded sion discus- nationwide new a this discourse, of follow-up the In citizens. and servantscivil withagreement new a of civil servants”. He is in favour of signing for rules management fair and raging encou- citizens, for cost better at vice on mobility andcareer Nationalon mobility paths Assembly, incivilservice, No845. and career passedby3- Billonmobility paths incivilservice, theSenate 2008,No77. on29April The isbeingdiscussedat text theNational Assembly. Conference nationale publicetdelafonctionpublique, surlesvaleurs, 2008. lesmissionsetmetiersduservice 2- See, J.L. Silicani, dent’swww.elysee.fr/documents. Office, 1- SpeechofthePresident oftheRepublic, Visit to ofAdministration theRegional Institute inNantes, 19September2007,official website ofthe Presi- basis of this reformthisbasisof the NicolassidentSarkozyupsummed Pre- 2007,September 19 on Nantes, in Institute Regional Administration the projects.reformmajor u uropean The French civil service is subject to to subject is service civil French The R

R eview e view D Livre blanc sur l'avenir de la fonction publique. Faire des services publics et de la fonction publique des atouts pour la France la pour atouts des publique fonction la de et publics services des Faire publique. fonction la de l'avenir sur blanc Livre Y

of o The career path of public officers in France opens up new horizons f P

P 1 ublic u : “betterpublic:ser- blic D A

u A ring a visit to visit a ring c ction tion 2 . to the debate the to key is officers public of development and granting easier access to private- to access easier granting and for all officials of the French civil service mobilityto right a principleof the sing a new right to mobility, while systemati- career concerning paths and mobility bill will introduce The responsibilities. new assume and rights new acquired have officers public 2007, February of laws the in down laid provisions tive legisla- the with accordance In vice. ser- civil the to promised is future new A developments. and changes these to adapt to have officers public ging, chan- is culture Administrative lenges. chal- new facing been has service civil the months, past the for particular in Above all, the improvement in career Administrative culture is chan- adapt to these changes and ging, public officers have to developments. 3 . For several years, and and years, several For . Associate Professor inPublic Law, Political of ScienceInstitute Toulouse aer eeomn bcms a becomes publicconcernauthoritiesof whichlay development career law can hardly remain unnoticed. service civil French in flagship a as lity skills appraisal or the principle of mobi- gnition of the acquisition reco- of experience,the training, to right individual an of introduction the Indeed, future. notable several developments,bettereventowards an through gone has sector employees. The improvement in civil servants’ servants’ civil in improvement The present,servants’civilAtcareerpath emphasis on mobility, the pursuit of additional activities and The improvement in civil ser- becomes a concern of public vants’ career development authorities which lay the vocational training. D elphine ESP . AGNO EUROPA ASSOCIATION - ISSUE 1 – MAY – 1 2010 ISSUE - ASSOCIATION EUROPA CASE STUDY CASE STUDY

the emphasis on mobility, the pursuit In other words, just like in the private of additional activities and vocational sector, human resource management in training. It goes without saying that we the public sector can become a means cannot complain about these develop- of meeting officials’ individual needs as ments, or innovations in civil service well as of staff costs reduction. In this law. However, we can remain scepti- context, both administration and offi- cal as regards their real meaning and To make sure that the enhance- cials have to take the opportunity offe- their application. Does the totality of ment of career paths is a means red by provisions to make sure that the provisions adopted or about to be adop- enhancement of career path is a means ted show a real willingness for enhan- of meeting individual needs as of meeting individual needs as well as a cement of civil servants’ career path? well as a collective imperative. collective imperative.

Do we have to consider these measures urope as nothing but a means for the intro- E duction in the civil service law of pro- in visions existing in the private sector for It goes without saying that behind the purpose of harmonising the rules these measures concerning vocational applicable in the public sector and the training and career paths, there is wil- private sector ? lingness to gradually modify the general statute of civil servants in order to respond, according to public authorities, On the one hand, this obligation is to the criteria of efficiency and perfor- The adopted changes, launched first related to the increasing impact of Com- mance inherent in state modernisation management

in the organic law on finance laws (LOLF) munity rules on civil service law, whose and reform in France. 2008, and perhaps in 2001, represent the translation of a consequences we cannot ignore4. The 2009, was for the civil service the year of need of enhancement of civil servants’ law of July 2005 illustrates this influence. change. If public authorities really wan-

career and the willingness to proceed On the other hand, the consequences ted to transform and adapt the French ublic

towards a merger of applicable rights in related namely to budgetary constraints civil service to the paradigms of new P the two sectors. We have to admit that presuppose, in the vein of LOLF, a fair public management, one should not the French civil service has to be subject use of financial and human resources understate the human resource dimen- 47 to a renovation of its legal system, in in the civil service. In the light of these sion and in particular, the enhancement particular as regards the civil servants’ constraints, the enhancement of career of public officers’ careers, while respec-

career development. In fact, the current paths becomes a means of meeting offi- ting the specificity of the French admi- Y

demographic, budgetary and Commu- cials’ wishes for promotion and a res- nistrative tradition. D nity context obliges public authorities ponse to new requirements. However, to refer to the issue of development of this also forces national and local public public officers’ career path. authorities to implement real human resource management in civil service.

4- See : Council of State Report « Perspectives pour la fonction publique », La documentation francaise, 2003, Etudes et documents, Conseil d'Etat, n°54 ; J.L.Silicani, Livre blanc sur I'avenir de la fonction publique. Faire des services publics et de la fonction publique des atouts pour la France. Confe- rence nationale sur les valeurs, les missions et les metiers du service public et de la fonction publique, 2008. CASE STU

European Review of Public Action EUROPA ASSOCIATION - ISSUE 1 – MAY 2010 48 CASE STUDY Public management in Europe Public officers’ career path CASE STU CASE ROPEAN E relations in the public sector; upon establishment of legal employment the situation can be described as follows: to the diagnosis report (September 2006),tor,career and remuneration. According employmentrelations theinpublic sec- legal in situation current the detail in diagnose to commission a designated perform sovereign functions. officials, except the casesin where they ment contracts for new civil servants and tions; mobility and flexibility of working condi- performance evaluation; administration public legislationof whole concerning the covering ralisation tives: announcedfollowinghencetheobjec- governmentXVII staff. The programme statuteregardsas public administration staff. And the same applies to the special tionalsituation publicof administration func- the of rigidity the and (progress) eithervertical (promotion), or horizontal almost automatic development of career,the conceptbecauseof this contentof relations and a lifelong job. ofcareer, covering specific employment concept the been has Portugal in vant racteristicstheofstatute theofcivil ser- 1. Introduction u uropean -Enormous complexity and rigidity rigidity and complexity -Enormous government the office, took it After -Application of a regime of employ- of regime a of -Application servants’ civil of -Encouragement -Revision, improvement and gene- and improvement -Revision, the to objected have sectors Several Traditionally, one of the distinctive cha- R

R eview e view D Y

of o Public officers’ career path: the Portuguese reform. f P

P ublic u blic A

A c ction tion of 28 formance evaluation (Law No 66-B/2007 12-a/2008 of 27 February). No (Law remuneration and career tor, employmentpublicsec- therelation in 7 of 53/2006 No (Law human field resourcetheof in mobility approved were administration public concerning provisions fundamental of and the state’s budgetary capacity. nismshumanofresource management mance; perfor- from independent system tion dent on length of service ; special-regime careers; proliferationof and contentfunctional Table II: Extraordinary leave Table I: Special mobility situation Member ofthelegalcommissionMember oftheEuropean Association ofPublic Pension Sector Institutions In response to this diagnosis, a number - -Little transparency in the remunera--Littletransparencythe in -Career development highly depen- highly development -Career -A large number of careers of identical D (maintained Base salary e Transition D ficient relation between the mecha- salary) e cember) and the regime of legal 60 days 70

% SMS D e cember), per- cember), 5 years (5/6 of base Retraining salary) V2 60

% SMS + 10 months 2.Human resource mobility tion of a special mobility situation (SMS). transfer of competences) with restructuring and or themerger or applica- rance restructuringtheservices (disappea-of relocationnewtoabody resulting from misation.This involves the civil servants’ restructured or subject to workforce opti- bodiesscheduled tobeclosed, merged, of officials and servants civil targeting 7 sectors. withinpublic administration otherinor to professional staff, eitheractivitythefor return and re-training vocational training, of measures new promoting existingmobility tools more flexible and andstaff mobility, while making already improveefficiencythe management of D The staff in SMS goes through stages of As a major novelty, Law No 53/2006 of to targets regime mobility new The D e eput cemberintroduced special mobility y director ofCaixa Geralde 10 yeras Compensation (5/6 of base Vasco Nascimento COSTA salary) 50 V3

% SMS D eposit os, EUROPA ASSOCIATION - ISSUE 1 – MAY – 1 2010 ISSUE - ASSOCIATION EUROPA CASE STUDY CASE STUDY

transition (period of support for return to 4.Regime of appointment, pro- 4.3. Remuneration regime work during which the civil servant can- motion and remuneration The new system is based on three ele- not perform other functions), retraining ments : (stage focusing on training sessions and The new regime of appointment, pro- professional training during which the motion and remuneration of employees -Base salary: the base salary depends on civil servant cannot yet perform other in the civil service complies with the fol- a table of remuneration specific for every activities) and compensation (final stage, lowing general principles: employee of the public administration characterised by the support for training and for every position. The number of or professional relocation, during which -Connection with the labour common- remuneration levels for a profession in the civil servant can already perform law regime ; principle (depending on the length of other functions, but is obliged to return service and classification) enables the civil

to work). -Application within the legal employment servant to attain the maximum level at urope relation (appointment and contract) of a the end of his/her professional life. E The special mobility situation ends with single regime in the fundamental fields ; in one of the following options: return to -Bonuses or additional pay : the major goal work at the public service, non-paid leave, -Maintenance of a career prospect in rela- of the reform at this level was obviously retirement, disciplinary dismissal by the tion with remuneration development to fight against the classical situation of public administration. subject to performance evaluation based widespread bonuses whose only purpose on results as well the needs of bodies and was to top up the base salary. The civil servant in special mobility budgetary resources; situation can ask for an extraordinary lea- -Performance-based bonuses : a new ve to perform remunerated functions in -Human resource management (objec- benefit was introduced to ensure the allo- management

the private sector, without losing his/her tive-specific) at public bodies. cation of bonuses to the best employees position in the public sector, but under depending on budget availability. the following conditions: a minimum 4.1. Appointment regime

period of 1 year (afterwards when he/she The new system will allow for only two 5.Conclusion ublic

wants to, the civil servant returns to the appointment modes: the (exceptional) P compensation stage) and regression of nomination for major services of the state The adopted measures are ambitious in the subsidy. (defence, justice, security, interior,…) and terms of scope and content. 49 contract of employment in civil service. 3.Performance evaluation Nevertheless, they need further regu-

Nomination can hardly change as lation and more or less long transition Y

The new performance evaluation sys- regards the previous situation, except for periods. The legal architecture of the D tem of the public administration has three the case when social protection is concer- new regime is still reasonably defined. goals: goal-specific management as a ned. Civil servants who have joined the The reform is now entering into its second major principle; establishment of a direct administration after 31 December 2005, really fundamental stage, when the new link between the performance re-evalua- are subject to the general regime of social model has to be applied in practice. tion results and career and remuneration security rather than the previously applied re-evaluation of employees and articu- special retirement regime of civil servants. While waiting for the advent of the new lation of the re-evaluation of managers regime of employment contract in admi- and employees with the evaluation of The contract, which replaces nomina- nistration, the assessment of this major CASE STU the bodies. tion as a common mode of appointment1, reform cannot take place. will similar to the contract of employment Performance evaluation takes place on in the private sector, but without remo- an annual basis. It starts with the contrac- ving the obstacles and inconsistencies tualisation of evaluation parameters established for the appointed staff. (results and skills) in February and finishes in January/February of the following year. 4.2. Career regime As far as career is concerned, the plan Employees’ performance is evaluated includes a considerable reduction in the 1- This article was written prior to the at the level of the Results parameter (the number professions, establishing profes- promulgation of the new regime of em- employee sets at least three goals and sions with broader denominations and ployment contract in civil service by the a performance measurement indicator job descriptions (merger of 1,715 profes- President of the Republic, approved by the every year) and the Skills parameter (the sions into three specialisations of general Parliament on 18 July 2008. The amend- employee sets at least five, enumerated regime) and highly limited possibility of ments to the Labour Code are still under discussion. Hence, it is not possible to deepen on the list of skills approved within the introduction in the future of new specia- the analysis thereof. professional group of the stakeholder). lised careers.

European Review of Public Action EUROPA ASSOCIATION - ISSUE 1 – MAY 2010 50 CASE STUDY Public management in Europe Public officers’ remuneration Public management in Europe CASE STU CASE ROPEAN E social privileges. yet. law civil servants has not been reshaped public-remunerationgoverningofthe law the being time the for reform, the despite However, officials. to regard in enhanced competition between and remuneration in differences more be will there future the in Therefore, Land. each of competence legislative Bund,ofbut havebeen included thein competencethe within been not have Angestellten civil service Traditional dualism of German agents in the public sector, the the sector, public the in agents regulated by law. are remuneration and career statute, neration of public-law officials ( tional reform in 2006, the law and remu- not put into question. Since the constitu- agreements. collective and law, private hence law, labour of regulations includes statute stick to the tostick to decision-makers forces which tance on the other hand, there is a strong resis- tivenesstheincontext globalisation;of competi- ensure to changes profound launch tonecessary is it hand, one the on Europe: in everywhere a as dilemma in caught is it general, In changes. currentlythroughisgoingmajormany Ger- in officers public million 5 nearly by publicbylaw,the one the On servantscivilgovernedaretherehand, statutes. two between u uropean On the other hand, there are contract This duality continues to exist and is and exist to continuesduality This The remuneration system covering covering system remuneration The The German civil service is divided divided is service civil German The R

R eview e view statu quo statu , for whom remuneration remuneration whom for , D Y

of o performance-related measures Public officers’ remuneration in Germany: new classification and f P

Beamte P ublic u blic and not to touchto notand A

A ; the relevantthe; c ction tion Beamte Lander Lander )

earn more. to reach faster the levels where they can the upper levels. This enables the young levels rises more quickly than the pay of professionals, the remuneration of lower publicemployersbestcompete the for rison with the private sector, with which the making public of sector moreattractive incompa- purpose the for and of time (15 years at the maximum). experiencereached over certain period of degree the to correspondlevels 1-6 level).TheMA level; groups13-15– BA – 9-12 groups years; 3 to 2 of training vocational for qualification; 5-8 groups for the position (groups 1-4 – no specific pond to the necessary base qualificationcorres- classification the of groups 15 describedtheinformer regulation. The classificationmentsof positions the for meant to replace the 1,700 different ele- groups and 6 levels of work experience, classificationbase 15 includes tiona of modelled on the same basis. was Landerthe agreementon theties, authori- local the of employees and officials state federal only concerned it Although it. to touch finishing a put 2008, March in concluded provisions, tor employers and trade unions and the negotiated in 2005 between public-sec- was sector.Itpublic theagreement for cers was launched by the offi- new collective public of remuneration the ning of 2005 agreement for the public sector The new model of collective In the face of demographic changes demographic of face the In h nw euain n remunera- on regulation new The The most interesting project concer-projectinteresting most The Professor at theFachhochschule ofKehl, managerat project theEuro ofKehl Institute representatives. staffand unit the of head thebetween ted from one administration to another in a separate agreement, to be negotia- detailed be to have criteria Exhaustive servicescolleague.ofsalprovided a by apprai- systematic and goals of ment achieve- measurement: performance for selected been have systems sible the collective agreement. Only two pos- in regulated been not have formance the list. from removed were salary 13th the of childrennumberparttheofand to ted rela- bonuses The regulation. previous the in down laid bonuses of pression sup- the through ensured was bonus indefinite future moment. the 8% target has to be reached at some element was reduced this to current 1% and opposition, considerable of sure 8% of the pay. However, at under in the come pres- to had element indicative The year. past the for employee every for bonusmerit-based a of form the in allocatedbewould part level).This the in (reflected experience work of tion dura- and group) the in (reflected tion qualifica- base from independent be to has salary the of part that was idea cials’ better performance. The principal offi- for incentives of terms in versial tion Indicative element of remunera- The criteria to measure officials’ per- officials’ measure to criteria The merit 1% the for needed sum The Rarely has a reform been so contro- so been reform a has Rarely Ewald EISENBERG EUROPA ASSOCIATION - ISSUE 1 – MAY – 1 2010 ISSUE - ASSOCIATION EUROPA CASE STUDY CASE STUDY

What is the attraction of the territorial civil service ?

Jean-Luc Bœuf, consultant Professor at the Paris Institute of Political Studies

The state determines the rules by the state), regardless of the respective the level, the position, job description for remuneration civil service. or allowances), whose nature is facultative and which represent an adjustment The remuneration of public officers in As the remuneration policy is conditio- instrument for territorial authorities, are

France depends on the level on which the nal upon the necessity of budget control equally subject to ‘the parity principle’. The urope official works (state, territorial authorities, on the part of the state, the state itself compensation scheme, set locally by the E public hospitals). It accounts for nearly defines the regulatory framework, the territorial authority council, is therefore in 45% of total state expenditure and less remuneration scale and pay rises nego- subject to the availability of limits of the than 25% of the expenditure of territorial tiated with the trade unions, but applied regimes for the benefit of the various state authorities. However, the remuneration automatically for the authorities, following functions. This is equal to saying that the of the territorial civil service (TCS) is to a their transposition in regulatory provi- compensation scheme granted to a terri- large extent determined by regulations sions. torial civil servant cannot be more favou- and decrees which are directly applied to rable than the one of the state civil servant the local authorities. Within this ‘conditional release’ system, performing identical functions. what is the actual room for manoeuvre of management

In fact, remuneration is part of the offi- the territorial authorities as regards the cial’s statutory and regulatory situation; state in the definition of remuneration of it is determined under Article 20 of Law territorial officials ? Territorial authorities forced to

No 83-634 of 13 July1983 concerning enhance their appeal ublic

the three categories of public officers Council of State Ruling CE 23 April 1982, P (state, territorial and hospital) and mainly the city of Toulouse vs. Aragnou, No 36851 As regards the increasingly tense situa- depends on the official’s status. The sta- outlined in principle the general obligation on the labour market, the limited 51 tute establishes the common rules for all tion for public employers to pay to their room for manoeuvre granted to the local officials in the same position. Although officials remuneration at least equal to the authorities in the field of remuneration

diversification varies according to geo- national minimum wage SMIC (indexed of their officials creates a problem in Y

graphic factors, family benefits and the on the SMIC value for the private sector – the competition between the different D relevant authority or entity (which deter- EUR 1,321.27 as of 1 July 2008). authorities, which see the levers of their mines the compensation scheme), these remuneration policy curbed by national elements are binding and are calculated Hence, the compensation schemes provisions. in an identical way (to a large extent fixed (containing pay and bonuses related to Finally, the room for manoeuvre of territorial authorities could be juxtaposed What does remuneration contain ? with the European image of the Euro- CASE STU l obligatory elements pean Monetary System (EMS), the suc- • salary cessor of the Monetary Serpent, which •r esidence compensation since the 1970s have been limiting the • family benefits fluctuations of the rates of exchange • salary-related pay between the member states of the • new grade-related bonuses European Community around the refe- • differential pay rence rate, the ECU. While fixing at the l facultative elements European level the fluctuation range of l compensation scheme national currencies, this economic provision put into frames governments’ room How is remuneration determined ? for manoeuvre in establishing exchange l Gross annual salary: grade, rank and level  gross index (rank index), which corresponds to  increased index (salary index between 280 and 821)  (increased index x salary value divided by rates of their currency. Likewise, ter- 100)/100 ritorial authorities seem to be able to l Compensation scheme respond only in the periphery when it Guaranteed minimum = SMIC = EUR 1,321.51  gross/month (1 July 2008)  EUR 15,858.12 a comes to the remuneration of their offi- year cials.

European Review of Public Action EUROPA ASSOCIATION - ISSUE 1 – MAY 2010 52 CASE STUDY Public management in Europe Public officers’ remuneration CASE STU CASE ROPEAN E fied staff Attracting specialised and quali- current demographic situation. tobesatisfactory namely asregards the closed statutory logic. logic of the profession rather than by the the other hand, preference marked luationby the tools to guarantee equity and, on performance; on the one hand, with eva- takingintoaccount officials’ results and nal provisions, first of all making place for ration policies lie on the flexibilitymodernisation of ofnatio- public officers’ remune-anytalents?foundations attractofThe policies. question the viability of some local publicnational regulations, threatens to putration restrictedinto rigidbyandpenalising rs), aggravated by the policies of remune-(for instance, doctors, nurses or enginee- culty in finding people for some positionsbecome more and more fierce. The diffi- privateemployers, competitionthe will as well as sector public the affect that u uropean Therefore, the system does not appear Whatpolicies canimplementedbe to In fact, with the numerous retirements aggravated by thepoliciesof rigid andpenalisingnational regulations, threatens to put into of questiontheviability remuneration by restricted people for somepositions, some localpublicpolicies. The difficulty infinding The difficulty What is the attraction of the territorial civil service ? R

R eview e view D Y

of o f P

P ublic u blic A

A c ction tion from the private sector). management or audit systems (borrowedlopment of evaluation or modern finance of its own professions, through the deve- neousmodernisation and diversification private sector, while ensuring its simulta- systemfromtheprofessionsand the in borrowed methods operational the to tion and economic environment, is closer competition with the private sector. toattract employees have toincrease in (upturn), the territorial authorities’ efforts environment,periodandain growth of rity of the positions it offers. potentialemployees thanks tothe secu- of number large a attracts service civil market,thelawsdependtheofand on weakgrowth,privatethe insectorjobs of case In good ratio. a employment-security offers service civil the turn), ritorial civil service, in particular. theattraction of civil service and the ter- factoralsoseemadeterminingbe toin public officers’ territorial remuneration establishing in canmanoeuvre still vary. regulation modes the from to the referring private agreement sector. collective statutoryrulescoexist withpractices of regime of salary mixed for a public from officers, emerge can where which and pholerelated open-endedto contracts, positions,recently encouraged loo-bya temporary opening in flexibility more rial authorities are quite tempted to seek ritorial authorities. human resource (HR) management at impedeter- the ‘managerial’ development of ment highly restricted by the state would vate sector, a rather bureaucratic manage- Hence,the TCS,which plays onattrac- contrary,economicthegoodOn a in Amideconomic uncertainties (down- circumstances economic the fact, In Thelimitation authorities’of roomfor thislight,stateterrito-Inthethe and borrowweIf thelanguage thepri-of of European countries. public spending expressed in themanagementof theconcernsover the majority tingpolicies and corresponds entirely to growththetakesinpartsubcontrac- of vicesof general economic interest SGEI), (liberalisationnetworkof services ser- – of the regimes of public services linein with theEurope more general development European(EU).inUnion processThisis ment of remuneration policies within the develop-generalthe join specificityto petencies). managementemploymentof andcom- GPEEC methodologies -- forward-lookingthe of (developmenttalents attracting provisionsincreasinglyto targeting flexible and of development the pushing ratherlimited,otherhandthe whileon ration system. tory,threaten toleaddualto a remune- ‘managerial’approach rather more than a statu- towards authorities territorial labourmarketplayers,teredby driving create a problem. The difficulties encoun-authorities as compared to the state, can establishment of a dual system in France.the to contribute will remuneration to The TCS is closer to the opera- Inthis respect, France will abandon its Thissystem willleave thecivilservice In fact, a rapid development at the local Theprogressive managerial approach from thesystem andprofes- sions intheprivate sector. tional methodsborrowed EUROPA ASSOCIATION - ISSUE 1 – MAY – 1 2010 ISSUE - ASSOCIATION EUROPA CASE STUDY CASE STUDY Public officers’ remuneration Flexibility related to merit and productivity

Pierre Luigi MASTROGIUSEPPE, Decision-maker at ARAN (Agenzia per la Rappresentanza Negoziale delle Pubbliche Amministrazioni – Agency for Negotiation in Civil Service)

Since the reform of public-sector A number of doubts are expressed resources and its compatibility with the employment in 1993, the remuneration that there are real negotiations as long macroeconomic environment. of public officers has been subject to col- as one of the fundamental elements, lective negotiation similar to the talks in the determination of the total amount

the private sector. Upon the formation of of pay rise, is an external element for urope the latest government, this system came the talks. 2) Towards flexibility in remune- E in the centre of debates. New reforms ration: remuneration calculated in have been announced. Meanwhile, ARAN negotiates on the on the basis of merit and pro- basis of formal mandates (called atti di ductivity indirizzo) established in a rigid way by the government and other non-state The setting of public officers’ pay 1) The existing system: remu- administrations. These directives can fix remains part of a private system, but neration negotiated at national the part of the resources allocated for with public regulations. It was meant to and local level base pay rise as well as the part desti- put an end to the unilateral setting of Just like in the private sector, remu- ned for local negotiations. This rigidity remuneration and pay rise irrelevant to management

neration is determined under national creates difficulties for ARAN, as it causes the benefits of productivity in the public and local collective agreements. Natio- a number of interruptions in negotiation sector. The reform helped to overcome nal contracts are determined between to verify or modify the mandate obtai- the rigidity of the previous remunera-

the most representative trade unions ned during negotiations. On the other tion systems and to link remuneration ublic

at the national level and a specialised hand, the familiarity of trade unions with to productivity: P agency (ARAN). The national contract the mandate limits its power. specifies the basic elements of remu- -By the partial transfer of remune- 53 neration and its indexation depending ration towards contracts of secondary on the changes in purchasing power; it level ;

applies to all salaries of the same cate- Y

gory; the parties determining the remu- -By strengthening the link between D neration change every two years, the productivity and evaluation of remu- others – every four years. Since 1993, the remuneration neration. Local contracts where employees’ of public officers has been sub- The idea was to establish a centrali- integration in a single administrative ject to collective negotiation sed system by making base elements body provided for sharing of the out- similar to the talks in the pri- of remuneration uniform, but a decen- come of productivity generated at the tralised one for elements dependent on local level and definition of criteria for vate sector. merit and productivity. CASE STU productivity-based bonuses, accounting for 10% to 20% of total remunera- For managers, the reform and sub- tion. Rules inherent of the private sector sequent national contracts laid down made their way to this system of private certain base remuneration at a national law. level more or less similar for all managers and variable pay determined at a First of all, financial resources alloca- Finally, collective agreements are sub- local level, related to the ‘job evaluation’ ted for pay rise are fixed in the budget ject to administrative control as regards (remuneration for the position) and law prior to the launch of negotiations. A the allocation of expenditure. Prior to management-related results (remune- similar mechanism is planned for nego- any final allocation, agreements are ration of the result). However, at present tiations of secondary level: rules specify sent to the government, in particular there is some rigidity and restriction of that contracts are covered by suitable to the Economy Ministry, which has to variability reintroduced: the remunera- funding laid down in the budget of say whether the agreement complies tion for the position has been divided administrations negotiating the local with budgetary policy and the Court of into a fixed part equal for all mana- contracts. Auditors, which has to verify the accoun- gers (de facto base remuneration) and ting of the agreement with the budget a variable part. Meanwhile, the latter

European Review of Public Action EUROPA ASSOCIATION - ISSUE 1 – MAY 2010 54 CASE STUDY Public management in Europe Public officers’ remuneration CASE STU CASE ROPEAN E new public management public new promises A reform which failed to keep its return to certain rigidity. the noticed also was case this In cials. limits career development for their offi- certain within propose to opportunity the granted also Administrationswere limited.ratherremains elements these rise) pay of importance theincreased, although merit-based (individual merit individual and bonuses)variable tion elements links productivity (annual remunera-ofimportance neration,the remu-total level. In local the at quotas salary of transfer the to thanks and merit, productivity and remuneration between was link the strengthen to meant It servants. civil non-managing regards as place took attempt similar A latter. the over dominant is former the but remuneration total of 15-20% for account result and position of tion remunera- currently,the pay: total the with comparison in reduced been has regarded as an opportunity for com- for opportunity an as regarded was pay variable the cases, of number a In ones. previous the to similar ned remai- mechanisms and logic the and account the original idea of the reform, into take not did level local the at pay variable of management the systems, to the adoption of really merit-oriented services. system of resultthe evaluationon orbased individual be to salary the of part limited a evenfor idea the to opposed culture had a marginal impact. tribution of orientations inspired by this the developmentmanagementdis-ofand widespread, so not is appraisal performance insufficient: was trations disappointing as the development of of development the as disappointing general in is merit and productivity to u uropean Amid these difficulties and resistance have unions trade addition, In The attempt to relate the salary quota Flexibility related to merit and productivity R

R eview e view D Y

of o f P

P ublic u blic A

A c ction in adminis- in tion zione a pioggia a zione of beneficiaries (the so-called (the beneficiaries of increasesignificant a and mechanisms automatic of basis the on resources of inflation rate. This led to the distribution salaries, which does not fully reflect the pensation of fixedfor thenational part public finance environment and the constraints of the macroeconomic the with compatible in the private sector, which is not always public salaries higher than the increase services. of productivity and the quality of public benefits real the than rather contract), national the for reserved usually tion responding to the cost of living (a func- justified the request salariesby for cor- always almost was resources larger of allocationthe for demand thetiations, of units was gradually cut. In local nego- evaluation of the growth the in with productivity link any Meanwhile, factors. merit-oriented and criteriaselective of This behaviour resulted in a rise in in rise a in resulted behaviour This always justified by the request The demand for the allocation of larger resources was almost the cost of living, rather than vity and the quality of public the real benefits of producti- for salaries corresponding to services. ) rather than on the basis distribu- reform The announcement of a new efficiency of publicaction. of evaluation of development the and manager the of status the 1990s: the from reform the of effects positive the thestructures which have undermined most difficult to address as they concern and merit. However, these productivity questions on are discussion the on sis empha- the again put toreform the of stage second the announced recently has Brunetta of Minister dynamics remuneration. the curb to were enhanced negotiations secondary-level tightened the control system. and absence sickness of case in tions a measure to introduce economic sanc- adoptedrecently governmenthas The press. the in repercussions significant ones addressing absenteeism provoked the Ministry, his of initiatives different ductivity of public officers). Among the relaunched vehemently the issue of pro- netta: see his statement in this issue; he Bru- Renato Administration Public of Minister by particular (in government tration as announced by the incumbent adminis- public the of reformradical a opinion. It constituted made legitimate public in strengthened officers public and administration of perception tive debt. Furthermore, because government of of the level nega- high very the of particularly vulnerable position because a in Italy puts deficit budgetwhich the to related reasons macroeconomic for The financial restraints relating to to relating restraints financial The This situation is no longer acceptable EUROPA ASSOCIATION - ISSUE 1 – MAY – 1 2010 ISSUE - ASSOCIATION EUROPA CASE STUDY CASE STUDY Public officers’ remuneration The dilemmas in remuneration of Dutch public officers

Laurens J. Zwaan, consultant/researcher, Leeuwendaal Jan Kenter, expert in remuneration/researcher, Ministry of Interior, the Netherlands

The average reader is not familiar with rise, regardless of performance, has rai- fore, the possibility of introducing salary the remuneration system in the Dutch sed criticism. A possibility of depriving differences depending on the perfor- public sector. Therefore, we start this the civil servant of this rise in case of mance provokes a real culture shock ! article with a short outline. We shall poor performance was introduced, whe-

focus on the major dilemmas in remune- reas he/she may be granted a higher Moreover, civil servants tend to urope ration in the public sector: position ver- rise and promotion in case of excellent contest decisions affecting their ‘rights’. E sus performance, private versus public, performance. Some sectors needed in and top-level remuneration. more time than others to abandon the These factors explain why despite the automatic system. For instance, water inclusion on the agenda for 30 years, management authorities have recently performance-based remuneration has introduced some flexibility of remune- not been applied to date for all public The Dutch system in a nutshell ration. sectors. Where it appears to be applied in theory, it is not put into practice. Some The basis of the remuneration in the Performance-based remuneration managers tend to avoid a real differenti- Dutch public sector is the pay depen- is not possible without a set of precise ation and still stick to the previous auto- management

ding on the occupied position. There rules for performance evaluation, with a matic promotion in sub-levels. is a system describing and classifying clear-cut definition of goals and criteria. positions according to level. Every level Performance-based remuneration is a

is divided into sub-levels. The civil ser- topical issue. The demand for a streamli- ublic

vant starts from the lowest sub-level of ned and more efficient public service P the respective level as defined in the and the competition on the labour mar- classification of his/her position. ket forces the public sector to reconsi- 55 der its remuneration system and to find Although the performance can more flexible and competitive mecha-

influence the progress within the level, nisms. Y

under the widespread practice the civil D servant moves up to a new sub-level The performance-based sala- every year until he/she reaches the top ry differentiation is a culture sub-level. If the civil servant holds a posi- shock. Public versus private tion of higher rank, he/she can progress in terms of level. The competition for employees obliges the public sector to take into Since 1993 the public sectors (natio- consideration the remuneration in the nal, municipal, police, education, etc) private sector. The major difference CASE STU have been holding their own nego- between the two sectors is related to tiations with trade unions on working their raison d'etre: the public good, on conditions. Thereafter, despite the simi- There is a major difficulty: very often the one hand, the business of private larities, the sums within a level can vary the mechanism of evaluation is not investors, on the other hand; the politi- from sector to sector. The system of clas- considered priority and is therefore cal aspect on the one hand, earnings, on sification of positions can also vary. neglected. Managers consider it equally the other. The fundamental and visible difficult to apply it, in particular to make distinction refers also to remuneration a reliable and real distinction between systems. Another difference is hetero- their employees. geneity. The public sector is more or less Position or performance ? coherent: employees of governmental Dutch culture does not help much bodies, education or healthcare earn Civil servants’ remuneration is main- in the application of this mechanism comparable salaries. The private sector ly determined by their job description. either. Flaunting one’s success is not well is much more fragmented. The level of Since the 1980s, the public sector has accepted. One is supposed to be modest salaries in the finance, industry or hos- been trying to give more weight to per- in case of personal success. Excellence pitality business are absolutely different. formance. The automatic annual pay is regarded almost as suspicious. There- Then what do we compare when we

European Review of Public Action EUROPA ASSOCIATION - ISSUE 1 – MAY 2010 56 CASE STUDY Public management in Europe Public officers’ remuneration D ROPEAN E profession. educational level, age, parts: sex/contract, four and into divided is here graph ficant variations in different groups. The is 1.6% higher. However, there are signi- the study. of scope the define indispensableto is it but understandingfor vitalhowever is comparison cautiously.The handled be to have statistics mostly and rison compa- etc.The security, employment conditions, working budgets, neration remu- in variation sectors, of diversity the positions, the differences between the of because difficult bit a always is definitions themselves create problems. fact, In sectors? private the and public talk about the comparison between the u uropean U M A Technical W M Man 100 % S > 4 3 < 25 A T L Elementary Educational level P W 2 H M op ow OSSIER ex/ Contract 5-54 5-44 5-34 rofession 55 mnsrtv -3 dministrative ge nknown igh Les causes des différences de rému- de différences des causes Les The average salary in the public sector remuneration of comparison The ngmn -23 anagement -13 an part-time edium mnpr-ie0 4 oman part-time oman 100 % The dilemmas in remuneration of R

R eview e view

of o f P

P ublic u 12 -6 -12 14 8 -1 -7 -9 -8 -1 29 -11 2 blic

% % % %

% % % % % % %

% % %

% % % % A

A c ction tion and systems have to be specific and and specific be to have systems and labourdeficit. Remuneration measures by accompanied is it unless problem, a necessarily not is remuneration low ciples apply to labour deficit. A relatively not are general but specific. The samesectors prin- the between differences this article. Our goal is to show that the in elements the all analyse cannot We remuneration are complex and various. labour deficit in the public sector. dy was carried out, there was not a large can create a problem. But when the stu- tion, except for the management,defini- which pertinent of element an not is paid in the public sector. The profession level,theyoung andwomen are better educational inferior of People salaries. lower indicates percentage negative a sector, public the in salaries higher tiques. poli- buts aux adaptés et spécifiques être doivent rémunération de tèmes déficit de travail. Les mesures et les sys- d’un s’accompagne elle si sauf blème, pro- un nécessairement pas constitue ne basse relativement rémunération Une travail. du déficit au s’appliquent principes mêmes spécifiques. Les mais entre les secteurs ne sont pas générales différences les que démontrer de est but Notre article. cet dans éléments Nous ne pouvonsvariées. pas explorer tous ces et complexes sont nération The reasons for the differences in in differences the for reasons The means percentage positive The of the department, he/she is entirely responsible for the The minister is at the head action of its civil servants. D u tch public officers vate sector. pri- the in 68% againstdescription job their with satisfied were sector public the in officials of 83% return,sector. In private the in 50% against salary, their with happy were officials of 45% tor sec-public the inindicated that(2006) equally important is as the salary. A position questionnaire the from faction adapted to political goals. Top-level rewards vant - comparison The minister and the civil services is in public interest. the continuity and quality of public ser- However,people. the by paid are they as salaries high very gain not should ted? There is a saying that civil servants top civil servants adequately remunera- Netherlands.themajorissuein a isAre the law guarantees appropriate remu- appropriate guarantees law the without the possibility of immediately, an appeal; but force into come which ministerareentirely politicaldecisions, appeal and against such a decision. dismissal this to object could he/she officer, public other any minister is in the same legal situation as the resign.If governmenttoforces the which no-confidence, of motion the is rights itsgovernment’s of Oneactions. the control to Constitution the under vants. The parliament is actually entitled ser- civil from different fundamentally view, of point ministers, are as such officials, political legal a From vants. ser- civil its res- of action the for entirely ponsible is he/she department, We should not forget that the satis- the that forget not should We Top-level rewards in the public sector The nomination and dismissal of a of dismissal and nomination The the of head the at is minister The EUROPA ASSOCIATION - ISSUE 1 – MAY – 1 2010 ISSUE - ASSOCIATION EUROPA CASE STUDY Public officers’ remuneration

neration and pension. They are fixed and state since 2002. government on this issue. As regards are not negotiable. All these advantages senior civil servants, the Committee for the minister are precisely defined; The Committee has found out that recommended a remuneration scale the law does not make an exception. ministers’ pay is nearly 30% below the based on 10 sub-levels. Finally, a perfor- The other advantages usually granted remuneration of senior civil servants in mance-based remuneration instrument to officials – such as bonuses, overtime the public sector. The mechanism for had to created and applied. pay or holidays – are not applicable for the pay rise of political officials did not ministers. function properly. Also the Committee Although it was relatively balanced, highlighted the gap between the public the Committee’s report was like dyna- The amendment to the law concer- sector and the private sector. Further- mite. The major issues were disclosed on ning these beenfits requires a parliamen- more, the Committee found out a consi- the night before the release of the report

tary and senate majority. The current pay derable variation in bonuses within the and were announced to the public in urope amounts to EUR 132,000 a year. public sector, sometimes related to per- prime time. The proposal for a 50% rise E formance, but more often without any (30% + 20%) in ministerial pay amid in Since 1 January 1981, after the latest recession and following a solemn call revision of the structure of top-level for moderation of remuneration seemed remuneration in the civil service, minis- absurd. An immediate condemnation of ters’ salaries were set at EUR 78,672 a the report was to be feared although the year. Ministers’ salary has not changed committee’s work appeared to be based ever since. Only annual rises relevant to on solid arguments. The cabinet adop- civil servants are applied. When civil ser- ted most of the recommendations. But vants’ remuneration was changed by the Although it was relatively because of the unfavourable socio-eco- management collective bargaining agreement, the balanced, the Committee’s nomic climate, the ministerial pay will minister’s remuneration was also raised report was like dynamite. be changed only after the next elections under a royal decree. But other benefits and the rise will be limited to 30%. The major issues were dis- granted to civil servants in the collective ublic

bargaining agreement were not appli- closed on the night before the Since the release of the report some P cable to ministers. release of the report and were changes have occurred. The Minister announced to the public in of Interior assumed the responsibility 57 In general, senior civil servants are in for the remuneration of all senior civil a strong legal position. prime time. servants. Civil servants can be paid at

the same level as the minister, including Y

after the 30% hike. However, ministerial D remuneration itself is not too high. The Dijkstal Committee The original proposals were made in 2004. Labour cost has been on the rise since Now it is 2009. The parliament has to give the 1990s. The Dutch public sector was the green light for a fundamental change severely hit by labour shortage in consi- relation to it. The relatively high auto- in the remuneration mechanism. But the derable proportions, some studies show. nomy of departments and their secre- change in the public sector appears to be In the private sector, there were scandals taries-general was the reason for these difficult. The principal criteria to determine CASE STU over hefty pay granted. One aspect was significant differences in salary. There- top-level remuneration in the public sector particularly alarming for the cabinet. fore, a change in the system is needed. are defined in a political way; a shake-up will Governmental civil servants at the top be needed on the labour market to trigger of hierarchy appear to be worse paid The Committee recommended an major changes. than officials at similar positions in other immediate 30% rise in ministerial pay sectors. Career development and remu- to make up for the discrepancy, followed neration issues hence have to be in the by a 20% increase in the following cabi- focus of particular attention. Therefore, a net period, to try to narrow the gap with remuneration committee was set up, the the public sector. Ministerial reward had ad-hoc committee on remuneration and to represent the maximum remunera- Berkhout, E., Heyma, A., Salverda, W., Belo- ningsverschillen tussen marktsector en col- the legal position of high-ranking civil tion to be granted to civil servants in the lectieve sector in 2004, Amsterdam, augustus servants, known as the Dijkstal Com- public sector. Exceptions could be made 2006 mittee, named after its chairperson and only after the agreement of Council of BZK, Trendnota Arbeidszaken Overheid 2008, former Minister of Interior. This Com- Ministers. A permanent committee was Den Haag, 2007 mittee has given advice to the govern- to be set up to monitor the remunera- Cie Dijkstal, Over dienen en verdienen, Den Haag, april 2004 ment on top-level remuneration in the tion of political officials and advise the

European Review of Public Action EUROPA ASSOCIATION - ISSUE 1 – MAY 2010 PORTRAIT

Leuven: Public action in the heart of Europe

The AURAP is the research and training centre specialising in administration and public policies at the Department of Political and Social Sciences of the Catholic University of Leuven. Managed by Professor Christian de Visscher and Professor David Aubin, it is a point of multidisciplinary convergence of public jects researchers focus on the mandate the AURAP is in charge of the mana- action topics in Belgium. system in senior federal civil service, the gement of the master’s programme in

PORTRAIT regulation of the financial markets and public administration in Leuven and is The acronym stands for a name unpro- the development of internal audit in the therefore a member of the European 58 nounceable in one breath – Association public sector. Master of Public Administration Consor- universitaire de recherche sur l'action tium (EMPA), which brings together in a publique (the University Association On the other hand, the AURAP shows network of excellence the universities of Research in Public Action) – which an expertise established in the field of of Leuven, Geneva, Liverpool, Vaasa, Tal- makes efforts to sum up the scope of comparative analysis and evaluation of linn, Budapest (Corvinius), Rotterdam action of its team of lecturers, assistants public policies. Research axes developed (Erasmus), Leiden as well as Deutsche and researchers. under international projects concern Hochschule fur Verwaltungswissens- environmental public policies, regula- chaften Speyer, Bocconi University and tion at different levels of industries and Paris Institute of Political Studies. network infrastructure in energy, tele- communications and transport, as well The AURAP is also involved in conti- as innovation in biometric science. nuing education of federal and commu- AURAP’s competences are nity civil servants and is available to the AURAP research is mainly financed public authorities for expertise relevant recognised in public by external public funds (e.g. the Fra- to its scope of competence. management. mework Research and Development Programme of the European Union for projects including NEWGOV and EURO- MARKET, Federal Scientific Policy and the French Community in Belgium). Their outcome was included in numerous publications of reputable publishers Any additional information on the AURAP, its members, lecturers, research On the one hand, the AURAP’s compe- (e.g. Lexington, Edward Elgar, Kluwer and publications is available on http:// tences are recognised in public mana- Academic Publishers, Peter Lang) and in www.uclouvain.be/aurap or via email: gement, with a focus on the relations international magazines (e.g. Journal of [email protected] or between the administration and citi- Public Policy, West European Politics, or [email protected]. zens, budget management, organisa- European Journal of Political Research). tional change and modernisation of public administrations. In ongoing pro- As far as education is concerned,

Eropeanu Review of Public Action

La SELI est une société d'économie mixte en service de l'Agglomération de Limoges et du Limousin.

En vue du développement économique de sa Région, la SELI réalise des opérations d'aménagement, de renouvellement urbain et des programmes immobiliers d'activités et de logements.

Forte de l'appui du Groupe de la Caisse des Dépôts et ConsignationsConsignations, elle bénéficie de son savoir-faire dans les domaine juridiques, techniques et financiers.

De par ses relations privilégiées avec les Collectivités LocalesLocales, la SELI garantit aux donneurs d'ordre publics la maîtrise des opérations d'aménagement dans la conduite de leur politique à moyen et long terme.

Une réelle souplesse d'intervention dans le respect des règles de la gestion privée sous le contrôle d'instances publiques renforce la sécurité de ses interventions en lui permettant une capacité de réponse rapide et adaptée.

Un ancrage territorial reconnu fait de la SELI la cheville ouvrière du partenariat entre les acteurs publics et privés dont la coopération est indispensable à toute action de développement économique.

31 Avenue Baudin 87000 LIMOGES www.se-limousin.fr

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Accompagner les collectivités et l’accès aux transports, à la protection sociale, à institutions et leur proposer chaque la culture, aux loisirs, aux aides sociales et aux jour les moyens de concrétiser leurs énergies renouvelables… politiques publiques. Contactez-nous Acteur majeur de l’économie sociale, le Le Groupe Chèque Déjeuner assure conseil [email protected] Groupe Chèque Déjeuner imagine des solutions et accompagnement dans la mise en œuvre 01 41 85 08 55 spécifiques pour réduire les inégalités, lutter de ces dispositifs, de la réflexion à leur www.groupechequedejeuner.com contre la précarité et améliorer la qualité de vie. application terrain en fonction de leur projet À travers l’ensemble de ses produits (cartes et politique. L’ensemble des produits garantit ainsi chèques socioculturels et solutions d’ingénierie une forte visibilité de l’action politique, une sociale), il apporte des réponses concrètes et traçabilité des fonds publics et une gestion efficaces aux problèmatiques des collectivités simplifiée des aides publiques. et institutions, et aux besoins des agents et à leurs populations. Depuis sa création, le Groupe Chèque Déjeuner est le partenaire privilégié de nombreuses Le Groupe Chèque Déjeuner développe aussi collectivités. des solutions sur mesure afin de faciliter

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