The Case of Georgia, Back Office Agencies Ineffectiveness; Remain Major Players in the Service Production • Discussions, Consultation, Making Decisions Chain

ACKNOWLEDGMENTS

This case study was commissioned under the initiative of the Regional Hub of Civil Service in Astana as a result of its Peer learning alliance on public service delivery among practitioners of Azerbaijan, Georgia and Kazakhstan. It describes the public service delivery reform in Georgia and is the outcome of several months of research in public administration reform in Georgia. Many individuals have helped to develop the case study and the author is grateful to all of them. The author is particularly grateful to those respondents who kindly and tirelessly contributed to the study by generously responding to interview questions and providing material. The Deputy Head of the National Agency of Public Registry of Georgia Mr. Chachkhunashvili, as well as Ms. Dzagnidze, a project manager at the Service Development Agency of Georgia have made invaluable contributions to the study. The Deputy Head of the Civil Service Bureau of Georgia, Ms. Dvalishvili has kindly helped to set interviews with respondents and Ms. Tsulaia from the Public Service Hall in Tbilisi has provided technical support to enrich the study. Special thanks go to Ms. Ketevan Gomelauri and Ms. Susanne Gentz for their continuous support during the research. This study would not have been written without the support from the Regional Hub of Civil Service in Astana (ACSH), and the author extends his gratitude to UNDP Kazakhstan which is the main implementing partner of the Government of Kazakhstan in supporting the ACSH institutionally. Sincere appreciation is extended to Mr. Alikhan Baimenov, Chairman of the Steering Committee of the ACSH, under the overall vision of whom the Research Team of the ACSH contributed greatly to the entire process of this case study development and the peer-to-peer learning journey. In particular, words of gratitude are extended to Mr. Yernar Zharkeshov, Portfolio Manager / Team leader of the Regional Hub of Civil Service in Astana, as well as the members of the Research Team of the ACSH, namely Mr. Dilzhan Yergaliyev and Mr. Artur Akhmetov, Project Experts who made this endeavour a success. The author is deeply grateful to them for their work and cooperation.

1 Executive Summary

The failure of administrative reform of the public in terms of knowledge and experience. It has ac- sector was one of the most important causes of quired strong expertise while designing and es- the political crisis in the fall of 2003 in Georgia. tablishing the Public Service Halls and Communi- Therefore, it was considered critical by the new ty Centres One-Stop-Shop public service delivery government to introduce administrative chang- structures. es that resulted in a considerable rationalization of the administrative structure. However, these International organisations such as Transparen- changes also raised questions regarding coordi- cy International continuously commended the nation in redefining administrative responsibil- Georgian government for maintaining a low level ities. There were and still are a number of struc- of corruption in the public sector (TI, CPI, report tural and procedural challenges that the Govern- 2015). Customer satisfaction surveys conducted ment of Georgia continues to confront. by local research organisations seem to indicate that citizens are satisfied with the quality and Prior to launching a substantial public adminis- effectiveness of the services delivered and are tration reform within its own administrative sys- ready to use them repeatedly. They are particular- tem, the Ministry of Justice recognized the need ly satisfied by having the possibility to use public for a sustained plan for coordinating the actions services in their immediate vicinity, thus, reduc- of policy implementers in the process of reform. ing transportation costs and time for using the By reforming the Civil and Public registry systems services (ACT, survey 2013). the ministry has initiated two major reforms to improve public service delivery that eventually However, the establishment of the existing changed the culture and nature of communica- One-Stop-Shop model was neither an easy nor tion between the administration and citizens. straightforward process. For it to operate effec- These reforms triggered the creation of Public tively, governments must develop an adequate Service Halls and Community Centres. Designed public service delivery ecosystem, including the according to the One-Stop-Shop public service elaboration of a legal framework, human resource delivery model, they aimed at simplifying the in- management, ICT and physical infrastructure as teraction between the government and citizens. well as the digitization of civil acts and a sound financial management system. It is a highly inter- A distinctive feature of the One-Stop-Shop (OSS) connected system of state agencies which serve model in Georgia is its clear separation of Back as service producers in the back office while de- and Front Offices in the public service delivery livery of services rests with those agencies which chain. Public Service Halls and Community Cen- operate front offices. This administrative process tres serve as front offices for those back office requires continuous monitoring, innovation, as- agencies that are responsible for developing pub- sessment and creativity. lic services. They advise on how to improve existing services and design new ones. They represent There are currently 17 regional Public Service the administration vis-à-vis citizens and continu- Halls in Georgia. Each of them is connected to ously monitor citizens’ expectations. The existing the central office and is providing more than 200 model is the result of the thorough and contin- public services to citizens. Their service outreach uous planning of those managers and adminis- is further strengthened by 43 Community Centres trators who initiated the reform in the first place. at the community level. The Government of Geor- Today, the Ministry of Justice with its subordinat- gia plans to inaugurate 11 centres in 2017. ed agencies is undoubtedly in a leading position

2 Abbreviations

CC Community Centre CPI Corruption Perception Index CRA Civil Registry Agency DFID UK Department for International Development GoG Government of Georgia IT Information Technology ICT Information and Communication Technology ICAO International Civil Aviation Organization MoJ Ministry of Justice of Georgia MoF Ministry of Finance of Georgia MoLHSA Ministry of Labor, Health and Social Affairs of Georgia MoA Ministry of Agriculture of Georgia NAPR National Agency of Public Registry OSS One-Stop-Shop (Back Office Front Office) PSH Public Service Hall SLMD Land Management Department of Georgia SSA Social Service Agency TI Transparency International UNDP United Nations Development Program USAID United States Agency for International Development VPN Virtual Private Network

3 Table of Contents Acknowledgments...... 1 Executive Summary...... 2 Abbreviations...... 3

1. Introduction...... 5 2. Historic Background to Public Administration Reform in Georgia...... 6 3. OSS Public Service Delivery Model of Civil Registry under MoJ...... 7 3.1 Refining Legal Framework...... 10 3.2 Designing HR System...... 11 3.3 Establishing New Services and Refining Old Ones...... 12 3.4 New Generation of Biometric Database...... 13 3.5 Integration of New Technologies...... 13 3.6 Infrastructure Development...... 15 3.7 Strengthening Financial Self-Sustainability...... 16 4. OSS Public Service Delivery Model of National Agency of Public Registry of MoJ...... 17 4.1 Refining Legislation...... 18 4.2 Institutional and Administrative Reforms...... 19 4.3 Technological Transformation...... 21 5. Public Service Halls also known as Justice Houses of MoJ...... 22 5.1 Functional Management of PSH...... 24 5.2 Classification and Nature of Public Services...... 25 6. Community Centres of the Service Development Agency of Georgia...... 28 6.1 Nature and Functional Capacity of Community Centres...... 29 7. Conclusion and Recommendations...... 32

References...... 34 Annexes...... 36

4 1. Introduction

Since early 2004, following the Rose Revolution, the and business approaches (Osborne and Gaebler Government of Georgia has rapidly reorganized 1992; Hood 1995). However, the openness, the public sector in order to increase its efficiency accountability and most importantly the citizens' and effectiveness. It has undertaken considerable trust in the public administration remained structural reforms, particularly emphasizing problematic. As a response, in the 1990s, scientists economic growth and anti-corruption. The size of proposed that the government moves from being the public sector has been significantly reduced, the sole player and controller to be an agenda bringing the private and public sectors into setter. Administrators see citizens not only as greater balance. The Government of Georgia has voters, clients or customers but also as citizens also undertaken reform of public administration, with whom they share authority. They reduce reorganizing the system of executive branch control and trust in the efficacy of collaboration administration. (Osborn 2010). The new leaders had inherited a challenging Concentration on public service delivery is governance apparatus characterized by weak and a direct response to the ineffectiveness of a disorganized institutions, lacking in transparency fragmented public sector in which various public and accountability, poor inter-ministerial services are provided by different state agencies. coordination, and ineffective public outreach and The concentrated public service delivery model communication. Therefore, strengthening public has become an important mechanism for sector capacity and ensuring its sustainability teaming up and solidifying governance relations was considered a top priority for the government. (Christensen, 2012). The effective delivery of The ultimate goal of public administration reform public services under the One-Stop-Shop model was to enable government institutions to provide heavily depends on the structure of government, public services to the citizens in an effective, and the allocation of responsibilities and duties timely and customer friendly manner. across government agencies (Wimmer, 2002). There is no universally accepted definition of what One-Stop-Shop, initially developed in Australia, constitutes public service delivery across countries was so unconventional to the traditional with widely different politico-administrative hierarchical administrative culture that it was systems. Traditionally, the notion of public closed down in the mid-1980s (Wettenhall and service derives from the French administrative Kimber, 1997). However, the idea survived and law and the main purpose is to satisfy societal returned to the agenda of public administration needs. The government must guarantee, regulate as a sub-element of New Public Management and control public services delivery as they are reform and its customer orientation concepts. essential to the social development and societal interdependence (Duguit, 1911). Today, with a diversified structure and nature it can be found in Australia in the form of local The classical model of public service delivery, government One-Stop-Shops, in New Zealand characterized by a defined hierarchy of offices (Service Centers), in Germany (Buergerbüro or with strictly separated competencies, has come to citizens' offices), in Canada, in France (Maison be seen as synonymous with bureaucracy, control Services Publique), in the Slovak Republic and hierarchy (Weber 1964; Wilson 1887). Since (Integrated Service Points), in Azerbaijan (ASAN the 1970, it has been replaced with New Public xidmәt or easy service), in Kazakhstan («State- Management (NPM) which has improved public owned corporation «Government for citizens» service delivery through using private-sector NJSC) and in Georgia in the form of Public Service 5 Hall (PSH) also known as Justice Houses and the and the National Agency of Public Registry. In Community Centres (CC). particular, the challenges that the Ministry of Justice of Georgia faced while establishing these The aim of this case study is to better understand two flagship agencies that played a crucial role the complex nature of the One-Stop-Shop (OSS) in designing and implementing public service public service delivery reform in Georgia as delivery reform in the country will be discussed. well as to analyze the challenges and potential The study will touch upon the administrative and benefits that the large scale changes in public institutional reform that eventually triggered the sector brought to government and citizens. By creation of a One-Stop-Shop ecosystem in public apprehending this case study, governments, service delivery reform. Then, the study will international organisations or any other actor continue by describing the evolution of Public intending to embark on or to support public Service Halls and Community Centres. These service delivery reform in their own countries are two main administrative channels of public will learn about the intricacies and trajectory service delivery under the Ministry of Justice and of the reform that the Government of Georgia are instructed to directly interact with citizens in undertook to design and implement the OSS a timely and customer friendly manner. The study public service delivery system. will conclude by discussing recommendations, The first few chapters of the study will focus describing challenges and highlighting lessons to on the evolution of the Civil Registry Agency be learnt from the reform.

2. Historic Background to Public Administration Reform in Georgia

In 1999, Transparency International’s Corruption integration and promote greater political stability Perception Index ranked Georgia as one of the in Georgia. most corrupt countries in the world. Georgia held 84th position in the list (TI CPI, 1999). This is not Since 2003, major political changes have been surprising. At the time Georgia was considered introduced by the Government of Georgia. a `Failed State` where endemic corruption in the These changes hold the prospects for significant public sector and social problems progressively improvements in government efficiency and created massive discontent in the population economy. The effectiveness of these changes (Foreign Policy, 2010). Government was not depended to a large extent on the success of capable to openly acknowledge the problems the reform of the administrative system. The of corruption in the public sector and was not improvements in public management started willing to confront corrupt companies and corrupt with the restructuring of the public sector. To officials by enacting robust anti-bribery policies. begin with, the government announced the creation of a smaller and more efficient public The failure of administrative reform of the public sector. sector was one of the most important causes of the political crisis that culminated in the The reform agenda was developed by a new set of Rose Revolution in the fall of 2003. Therefore, managers with private sector experience. A new it was considered critical by the new Georgian law on “Structure, Functions and Responsibilities government to address the problem of insufficient of the Executive Branch” was adopted by the government capacity in order to improve political Parliament in February, 2004 (GoG, law 3277, 2004). The Law on “Public Service” was amended 6 by the Parliament in June, 2004, in such a way as Improving institutional capacity does not to establish the Council on Public Service and a merely mean articulating existing administrative Public Service Bureau as the key state bodies to structures or adding new administrative lead the public service reform agenda (GoG, MoJ, units to carry out previously undesignated law 760, 2004). The Council on Public Service was tasks. Rather, improving institutional capacity established to provide an oversight board to guide implies horizontally integrating administrative the process of administrative modernization. procedures and activities to increase effectiveness Substantial assistance from donor organizations and efficiency. was provided to help begin the modernization of public administration in Georgia. The Ministry of Justice recognized that there was a need for a sustainable plan for coordinating the The administrative changes resulted in action of policy implementers in the process. This considerable rationalization of the administrative approach was to become a guiding principle prior structure, but they also raised questions regarding to launching a substantial public administration the coordination in redefining administrative reform within its own administrative system. responsibilities. There were and still are a number The ministry has initiated two major reforms to of structural and procedural challenges that the improve public service delivery in the country. Georgian Government continues to confront, Namely, it embarked on reforming the Civil and especially in relation to the One-Stop-Shop (OSS) Public registry systems that eventually changed public service delivery process. For instance, the the culture and nature of communication between financial structure of the service delivery chain the administration and citizens. The reform that remains vague, which impacts the financial triggered the creation of Public Service Halls and efficiency of the service delivery agencies. Such Community Centres in the country was designed uncertainties could be reduced if state agencies according to the One-Stop-Shop public service in the back and front offices of the One-Stop-Shop delivery model and aimed at simplifying the public service delivery chain were to develop a interaction between the government and citizens. clear and fair structure for service fee allocation. The Ministry of Justice should ensure that there is In order to better understand and describe the a horizontal interaction between back and front existing model of public service delivery, it is office agencies to jointly negotiate a financial important to analyze roots and origins of the formula to make the fee transfer mechanism more reform. Therefore, the next few chapters of this predictable (PSH, Interview with a respondent, case study will focus on the evolution of Civil 2014). Registry as well as Public Registry agencies in Georgia. 3. OSS Public Service Delivery Model of Civil Registry Agency under MoJ

The Ministry of Justice of Georgia (MoJ) has of identity cards and passports. The reform of the identified the development of an appropriate civil civil registration system was based on international registration system as one of the top priorities experience and aimed at establishing a system on its reform agenda. The reform envisaged the based on One-Stop-Shop principles of public rationalization of the entire, hitherto fragmented, service delivery. The successful implementation inefficient and ineffective system of civil acts of the reform would allow the government to registration and the administration and issuance unify citizens’ database, streamline information

7 flow and to securely share information within corrupt state officials, the reputation of the system state institutions and between administration was so shattered that citizens were unwilling and citizens. to directly and fairly interact with the agency. Instead they prefered to continue bribing the The civil registry reform started in 2004 when the administration in order to receive their rightfully Passport Issuance Bureau, Citizens’ Registration deserved services (Gagnidze, 2009). and Civil Acts Registration Bureaus were united and brought under the management of the In the initial, transitory period, it was difficult for Ministry of Justice (Gagnidze, 2009). Merging the newly established agency to offer quality public services under the ministry was not services and to satisfy citizens demands. There straightforward process. There was some attempt were several reasons for it. The budget of the CRA prior to 2004 to bring citizens related services was extremely low and management could not under the management of one state institution. carry out the reform rapidly. It was necessary to However, this process was obstructed by the make major adjustments to increase salaries for Ministry of Interior as these services served as employees, to offer decent working conditions, a perfect “black” income for state officials in the to modernise the physical and Information and ministry (Interview with a respondent, 2014). The Communication Technology (ICT) infrustructure, transfer of several services like passport issuance to update the legislative framework, to digitize and civil acts registration was a political decision. civil acts archive materials, improve Human Political actors agreed that the Ministry of Justice Resources (HR) and to orient the entire agency would be in a better position to provide citizens towards a customer service approach (Gagnidze, with basic, necessary documentation. As a result, 2009). the Ministry of Interior transferred responsibility on these services to the Ministry of Justice A mission statement in the 2007-2011 strategic (Interview with a respondent, 2014). Unification plan of the CRA emphasised the “Formation of services initially allowed the ministry to create of a Customer-Focused, Unified, Secure and the Civil Registration Department. In 2006, a new Continuously Updated Civil Register” as an semi-independent Civil Registry Agency (CRA) expected result of the reform process (GoG, CRA was established. The agency was registered as strategtic plan 2007). The CRA identified several a legal entity of public law under the Georgian objectives to accomplish this mission. Namely, legislation (Gagnidze, 2009). it acknowledged that it was strategically vital to 1. Create a refined legal framework; 2. Develop The legacy left to the newly established Civil and implement a human resources system; 3. Registry Agency (CRA) was poor. First of all the Establish new services and redesign existing system was corrupt and heavily fragmented. ones; 4. Develop a new generation (biometric) The human resource management system was database; 5. Integrate new technologies in the compeletely outdated and ineffective. It had reform process; 6. Improve infrastructure; 7. meager or practically non-existing financial Strengthen financial self-sustainability and a means, dilapidated infrastructure, only few financial management system. These aspects will computers and an incomplete database on be further elaborated below. citizens. With highly ineffective management and

8 Picture 1 - Ministry of Justice of Georgia, Tbilisi

9 3.1 Refining the Legal Framework

The establishment of a new public organization The agency in consultation with other state requires thorough planning and legal framework entities initiated a process to elaborate a law on development. The Civil Registry Agency was not personal data security. At that time, the existing an exception. The agency enjoyed considerable legislation of Georgia did not regulate the organizational independence from its foundation. personal data security issues thoroughly. This However, while it made decisions independently, raised concerns for the CRA, which was an agency it still lacked a properly defined legal framework. handling voluminous personal data in the public sector. Since the personal data security issue was In particular, there was no legal act on the citizens’ and still is not limited solely to information at the register to begin with. The issues related to it were CRA, let alone the public sector. However, to avoid only partially and indirectly regulated by the law backlashes in the reform process, the agency on identification documents. Certain registry proposed to incorporate the important aspects of provisions were scattered in various statutory the legislation in the law on citizens’ register until acts and regulated this field incompletely. The a separate, specific law was put in place. law on registration of civil acts and the law on identification documents contained many The necessity to develop respective sub-legislative shortcomings from the legal point of view. legal acts was evident right from the beginning Importantly, there were no legal acts in place of the reform. Parallel to the development of to adequately regulate issues for personal data new laws to regulate the CRA’s activities, sub- security. It became evident that there was a need legislative legal acts were put in place to regulate to create an appropriate legal framework that procedural issues for the maintenance of the civil would better serve the agency’s mission and register in detail. In addition, special guidelines working needs. and instructions were developed to regulate the technical and organizational issues for the civil The CRA’s management elaborated a separate register maintenance. These guidelines served law on the citizens’ register based on an analysis as a guiding principle for CRA employees in their of Georgian and foreign legislation and practice. day-to-day activities. Adopted by the Parliament of Georgia, it began to sufficiently regulate the issues related to Finally, to ensure the robust functioning of the maintenance of the unified citizens’ register. agency, it was important to elaborate clear regulations of organisational processes. The In addition, the existing law on registration of civil CRA as a newly established legal entity of public acts contained a number of vague provisions, was law, semi-independent from the Ministry of deficient and outdated to electronically maintain Justice required revisions in its charter and by- the civil acts register. A new law on the registration laws, development of clear rules on operations, of civil acts was therefore developed that met the functions and responsibilities. As a result of infrastructural and technological needs of the the implementation of these legal initiatives, agency. the agency updated and modernized its legal Moreover, a law on identification documents framework and further strengthened the reform was produced by the agency and approved by process within its administrative system. Parliament. The new law made provisions related to identification documents less ambiguous and structurally and conceptually clearer.

10 3.2 Designing an HR System

A well-defined and clearly structured Human The system of rewards encompassed monetary Resources (HR) system is the basis for any public and non-monetary rewards. Monetary rewards or private organization. The management of the took the form of granting cash or gift cards. Non- CRA has recognized the importance of reforming monetary rewards included letters thanking for HR in its quest to reform the system and to achieve an employee’s contributions, acknowledging the set goals. long, honest and loyal service or performing overtime work or work in exceptionally stressful The agency inherited the consequences of environments. Such letters were given to those neglect of human resources issues: the absence of who made exceptional contributions for the a system for describing job positions, the need for agency and were hailed by their fellow colleagues improved arrangements for salary determination, and supervisors. Awards were entertained on bonuses, social insurance benefits, and non- a monthly basis. Middle level managers, heads monetary rewards, the difficulty in replacing of departments and heads of territorial bureaus resigned or dismissed employees and recruiting were expected to submit to top management a well-qualified new staff, only partial application special award form explaining the reasons for of analytical tools to HR management, a need to rewards to be granted to employees (Gagnidze, expand the number of staff in the HR unit to meet 2009). new demands, and a low level of automation in HR management processes. Fundamental The agency started implementation of an HR capacity building was needed to address these management system software to better manage issues (Gagnidze, 2009). the existing paperwork-heavy and overly time- consuming bundle of processes. The software To respond to these challenges, the CRA embarked provided a platform for the establishment and on developing a periodic employee training use of an electronic personnel database. system. A key characteristic of a well-structured human resources system is that the people The CRA’s HR developed a recruitment and working in the organisation have professional selection system and established a reserve qualifications and training to meet the needs of for qualified staff. This allowed the CRA to their positions. Hence, the CRA’s HR management keep a systematic database of resumes or system began to identify and utilize management other professional information on prospective and training tools and created the basic training employees or individuals who have expressed program elements to support its staff in meeting interest in applying for employment. In parallel, their commitments (GoG, CRA strategtic plan the agency launched a program for unpaid 2007). internships, which enhanced its interface with the market of prospective new employees. The HR unit started reviewing employee job satisfaction levels. Increased motivation was In parallel to tracking and identifing those crucial to effective staff performance, so that they employees who were still prone to engage could make their valuable input to the CRA’s goals. in bribe taking, the management decided to The HR management has created basic system organize attestation. The agency received around tools and processes, including such items as the 4000 applications. After the selection process a creation of job descriptions, routinized collection set of trainings in customer service, legislation of data on job satisfaction and development of a and in document workflow were conducted to system of rewards. prepare new employees for their tasks. Eventually, there were approximately 70 percent turnover

11 of personnel in the entire system nationwide institutional knowledge and to ensure proper (Interview with a respondent, 2014). However, hand over of competences. it was a slow process to mimimize the loss of

3.3 Establishing New Services and Refining Old Ones

Offering new and improved services to customers archived it electronically. It reduced the issuance was considered an ongoing, basic aspect of the age for ID cards to 14 to allow the state access CRA’s operations. The CRA prioritized specific areas to information on its citizens much earlier. This for improvement. For instance, the management helped to support planning for educational, decided to delegate authority to territorial offices health and other issues. A package of new and for carrying out particular actions, to simplify improved services was initiated that simplified the procedures and to expand services based on issuance of identification documents for citizens. innovations. This included the possibility to take photos in all territorial offices, the mailing of passports to Specific services to be refined included services citizens, and the issuance of passports based on of civil act certificates issuance. In order to power of attorney, thus, making physical presence improve effectiveness, to facilitate the unification at a CRA office by the applicant unnecessary. process of services, to shorten processing times and to simplify the receipt of certificates by Offering new types of services to public entities citizens at locations convenient to them, the Civil became one of the CRA’s priorities. With the Acts Registration Division under the CRA has improvement of Information and Communication delegated authority for the issuance of certificates Technology (ICT), the CRA was able to provide to territorial offices. A similar delegation has access to the renewed and integrated citizens taken place for the review and approval of database to various public entities in an online name changes. In addition, the number of forms regime. This helped to minimize irregularities in required for some civil acts’ registration was the database and enabled the agency to monitor reduced, and the physical presence at a territorial unauthorized access to it. The CRA also decided office was no longer necessary for some actions. to offer the citizens information sharing services Moreover, in order to streamline the accuracy of to the private sector. Namely to the banking the civil acts database the CRA digitized birth and sector. The rational for this decision was to track death civil act certificates from its archives. those false identification documents that were issued by the old administration. Thinking how to Also, the CRA began to offer new types of speed up the process of registration and decrease services. The CRA initiated improvement of the number of false identification in circulation, services at Matrimonial Houses. It has updated reformers realized that most citizens were more infrastructure and constructed new matrimonial likely to interact with a bank than pro-actively seek houses in regional centers. It increased the out registration services. By linking the banking variety of ceremonies available for matrimony sector to its database, the CRA management and expanded marriage-related services such allowed bank operators to verify the validity of as offering live music, photography, etc. upon identification documents in the CRA database. In request of citizens. case of discrepancies, operators were expected to The CRA expanded and simplified passport and hold customers’ requests until new identification ID issuance services. In order to access citizen papers were provided. Thus providing important information and unify the registry, the CRA gained incentives for citizens to register. access to citizens’ data from regional centers and

12 Plus, the CRA charged banks certain fees for invest in projects of high importance, like the granting access to its database, thus, generating development of new technologies and creation additional revenues for the agency. The funds of a refined personal database. raised from these services enabled CRA to

3.4 New Generation of Biometric Database

In order to deliver services more effectively The development of a database protection system and to further unify the civil register, the CRA helped the CRA to secure data from potentially management identified the creation of a new unauthorized access, to create a system for biometric database as a priority. The absence of a tracking database actions to minimize untargeted proper, refined database would make it impossible use of identification data and to avoid data to establish new technologies and to offer new damage. Plus, CRA maintained a flexible database services to citizens and organizations, both public structure to enable the agency to enter new and and private. A database with comprehensive desirable parameters to the database without biometric parameters would drastically minimize altering its existing structure, ultimately making the possibility to forge personal ID documents and services more versatile and readily available. would play an important role in the simplification of the visa regime with other countries, especially The unified database encompasses data for with the Schengen zone states. personal ID and registration, passport data, changes to the citizens’ status, civil acts Given the above parameters, CRA has prioritized registration data and the biometric parameters formation of a refined personal database in line corresponding to International Civil Aviation with internationally accepted standards. It added Organization (ICAO) standards. With this, the to the database the biometric parameters such agency laid the foundation for further advancing as photo, fingerprint and electronic signature. the One-Stop-Shop public service delivery model To further eliminate and bring errors in the and created a strong basis for public services to database to permissible minimum threshold, it be offered via e-governance. has developed the database monitoring system and ensured its sound functioning.

3.5 Integration of New Technologies

The introduction of new technologies such as of the new technologies. Given the direct link an integrated electronic network, electronic between technological development and ID cards and biometric passports were critical improvements in public service delivery, the elements for the development of a functional, CRA management considered the advancement e-governance based on One-Stop-Shop of new technologies the prime objective of the model. They play important role to maintain a agency (GoG, CRA 2007). constructive relationship with customers and to raise additional revenues for the Agency’s Initially, the agency‘s information technology (IT) financial sustainability. unit developed a specialized software to work in real time. It allowed the agency to automate the A more powerful, more efficient, more readily registration process throughout the system and useful civil register as envisioned in the strategic implement state-of-the-art IT-based technologies. plan was closely dependent on development The introduction and use of Biometric Passports 13 and electronic ID cards enhanced data security Unifying citizens’ services across all its units was and helped citizens use ID cards simpler and important to provide customer satisfaction, to easier. automate activities within the agency, create the Virtual Private Network (VPN) connecting In order to develop a customer-focused, unified, territorial offices and provide standardized staff secure and continuously updated civil register, trainings to deliver a unified package of services the management put emphasis on automation of across the agency. operations. To maximize automation and ensure that it is adequately available across the agency, The unification process rationalized the system to trainings were conducted on automation efforts the extent that regardless in which territorial unit on financial management, HR records and on a customer placed a request, the agency was able document turnover in the chancellery. to issue a document on the spot, in the immediate vicinity of a customer. This of course streamlined To allow effective use of public services by public information flow and ensured fast and higher- and private entities in real time, the agency quality services delivery to citizens. In parallel, the established an integrated electronic network that agency established an electronic record keeping allowed to provide solid infrastructural basis for system to attain a unified, universally accessible developing the software modules and access civil register. protocols for the entities. This enabled CRA to grant access to government and commercial customers immediately and in usable format.

Picture 2 - New Biometric Passport at Public Service Hall

14 3.6 Infrastructure Development

The outdated and dilapidated infrastructure for rehabilitation and to ensure that the service stood in stark contrast to the customer oriented meets local government political interest as well policies of the agency. Hence, the agency as being provided with uninterruptable water, identified four main directions to deal with this heating and electricity services. Plus, it was challenge. It decided to refurbish old territorial required that the new facilities could operate offices, set up new matrimonial houses in the matrimonial ceremony houses in regions. regions, install central and backup computer servers and to launch an integrated network The establishment and installation of central and which would connect all CRA offices throughout backup servers ensured uninterrupted and online Georgia. Modernizing the infrastructure, both functioning of public services. This allowed the in terms of physical site improvement and ICT agency to operate an integrated information system upgrades facilitated the effectiveness of network and ensure up-to-date methods of the system, supported the quality and timeliness information security. Moreover, the introduction of service delivery to customers and allowed the of Virtual Private Network allowed the agency agency to offer services in the form of One-Stop- to connect all territorial offices to the network Shop to citizens. and helped to fully integrate its information flow throughout the country. This undoubtedly added The refurbishment of territorial offices according great power and flexibility to a variety of CRA to the One-Stop-Shop model required active actions to further innovate and advance public engagement with local authorities. It was crucial services. to identify appropriate physical infrastructure

Picture 3 - Justice House Telavi, Eastern Georgia

15 3.7 Strengthening Financial Self-Sustainability

Strong capacity and flexibility in financial for deriving its own revenues from the services management was considered a basic ingredient delivered. Hence, the agency initiated the for reforming the agency. Some level of financial formation of a refined system of financial analysis stability was characteristic of the CRA’s finances and started thorough planning and expenditure in the beginning of reform. However, it was monitoring. A master financial management neither enough nor sustainable for advancing a plan was developed to improve and streamline comprehensive reform. Therefore, it was necessary financial unit action plans and expenditure to strengthen financial self-sustainability and requests. It automatized financial operation introduce a refined financial management system. within the system and offered its personnel a continuous training in financial management The CRA received the bulk of its funding from the (Gagnidze, 2009). state budget. Interestingly, the CRA’s contribution to the GoG’s overall budget considerably The agency has started introducing a system exceeded the budgetary funding for the CRA’s of continuous financial controls. Namely, it activities. At the same time, critically needed developed a systematic approach to identify reforms for building desired reliability, timeliness, articulated internal control and audit principles security and transparency into CRA operations and began carrying out regular internal and and services called for the optimization of external audits. Staff at the financial unit was existing financial flows. Financial contributions offered a set of trainings to strengthen professional from international donors such as USAID, DFID knowledge and skills in auditing and accounting. and UNDP, very important for successfully implementing the reform were not expected In spite of enormous efforts of the Civil Registry to continue much, beyond the final strategy Agency management to modernize and to reform period year of 2011 (GoG, MoJ, 2007). Therefore, the system, it still required thorough day-to-day diversifying sources of revenue through the management, monitoring and innovative thinking development of innovative services to citizens to achieve the desired outcomes. Management at and private sector organisations was essential to the Ministry of Justice understood perfectly well the CRA’s longer-term financial health. that reformation of one state institution, albeit as important as the CRA, was not enough for public As a public sector organisation, the CRA carried a service delivery improvement in the country. responsibility to manage public funds efficiently, Hence, in parallel to the CRA, attention focused on purposefully and responsibly. As a legal entity of establishing a National Agency of Public Registry. public law, the Agency possessed the legal basis

16 4. OSS Public Service Delivery Model of National Agency of Public Registry of MoJ

In 2004, a new legal entity of public law, the Today, the main functions of the agency as National Agency of Public Registry (NAPR), was stipulated by the law include: primary and any established by the order of the Minister of Justice other type of registration of immovable and (MoJ). NAPR was created as an agency under the movable properties subject to registration rights; subordination of the ministry and was given a registration of collaterals and encumbrance; mandate to assume the rights and obligations to registration of the agreements concluded make transactions on its own behalf and defend between owners of apartments and their tenants; itself vis-à-vis third parties. It was granted the issuance and maintenance of the information of right to have an independent balance, banking movable and immovable properties in the country; (including currency account), emblem and seal provision of land registration information to tax of the state emblem, and other attributes of a authorities based on the data of land cadaster; legal entity (MoJ, order 835, 2004). In essence, systematization, computerization and security the agency has acquired the similar status as the of registry data; establishment of boundaries for Civil Registry Agency, its sister organization under administrative-territorial entities; ensuring the the subordination of the Ministry of Justice. While data accessibility between state and private as establishing the agency, NAPR management well as among state institutions; maintenance and engaged with the Ministry of Finance of Georgia constant update of real estate cadaster database (MoF) and convinced the ministry not to demand and its software; preparation of analytical reports funds generated through services provided to related to the cadaster; cooperation, development be transferred to the state budget. This gave a and innovation of public registry in coordination lot of flexibility to the agency as it was allowed with donor agencies; elaboration of a budget for to maintain its funds and to start reforming the the agency as well as the development of rational highly inefficient and corrupt system of public fee policy for the services provided to citizens etc. registry (Interview with a respondent, 2014). (MoJ, order 835, 2004; Civil Code, amendments 4744, 2007). The aim of NAPR, according to its statute, was to register the real-estate property and other Prior to creating NAPR, the functions of the state proprietary rights, as well as to recognize and registry fell under the State Land Management verify the agreements concluded between real- Department (SLMD) established in 1997. However, estate owners. The agency was instructed to the department was not able to perform its design, develop and securely maintain a real- functions neither efficiently nor effectively. The estate cadaster database. The rationalization main reason for the dysfunctional administration and constant update of public registry data fell was the duplication of registry functions. Even under its responsibility. The agency had to ensure though the department was responsible for state the accessibility of the data and support the registry, the same functions were granted to development and promotion of the market of technical bureaus under the local authorities. A movable and immovable property in the country. lack of coordination among the department and Plus, it had to initiate a substantial reform process numerous technical bureaus as well as overlap to modernize the registry in Georgia (MoJ, order in terms of their functions and responsibilities 835, 2004). gave corruption a solid ground to prosper. The registration of a land or a property was associated

17 with immensely ineffective bureaucracy, long shortage of experienced and reform-minded queues and endless nerve-wracking procedures personnel and an extremely low culture of service (NAPR, 2016). As a consequence, the reputation delivery. of the administration was heavily damaged in the eyes of citizens. It became evident for the new management that it was salient to reform the system in a way The establishment of NAPR paved the way that it transforms into a customer-focused and for the government to abolish the State Land transparent institution capable of offering citizens Management Department and technical secure and unified public registration services. inventory bureaus under the management of The agency identified four key areas to reform local authorities. The land registration functions the system that are discussed in more detail and data kept in the technical bureaus were below: legislative, institutional, administrative transferred to NAPR. and technological. The management emphasized the development and use of modern information Even though the agency became the sole technologies as well as the simplification player in the field of public registry, it inherited of procedures for registration as the main an ineffective and corrupt system that characteristics of the reform (NAPR, 2016). lacked personnel to operate physical and ICT infrastructure, had an incomplete legislative base,

4.1 Refining Legislation

In parallel to the creation of NAPR in 2004, the for an extract to be a legal document. Any state, Government of Georgia initiated changes in non-state or private actor could verify the validity the public registry legislation. The aim was to of an extract by simply searching it in the NAPR harmonize and unify the scattered legal acts database available for free on the agency’s under one, more sophisticated law. As a result, website. the Parliament of Georgia passed the "rights to real estate registration" law. The law regulated A new standard for a land cadaster was registration procedures and simplified interaction established. It became a requirement to submit between agency and citizens. As a follow up to the a cadaster scheme to register a right for a land legislation, the Ministry of Justice developed a set parcel. Standardization allowed to create a unified of instruction to regulated real-estate registration electronic database of land cadaster. practices in the agency. In 2008, a law on “public registry” was passed The initiated legislative reform allowed citizens to by the Parliament of Georgia. The law clearly monitor and track the registered data transparently defined functions and responsibilities of the and timely. The agency has lifted restrictions on National Agency of Public Registry. This allowed access to information, thus, granting citizens the management to tackle new challenges the right to access the information on property facing the organization. It helped to create a registration of anyone. The public registry extract robust framework for streamlining real-estate has become an open-ended document where registration. All norms that were previously citizens could see all properties registered scattered in various acts were brought together under one unified format. Moreover, the agency under one legislation. This contributed to granted a legal status to an electronically printed minimize the time necessary to register a property extract, it was not required any longer to have a and helped in elaborating adequate fees for the stamp of a registrar or a signature for that matter services provided.

18 The legislation reform has created a solid legal procedures for citizens seeking the registration of framework for the technological advancement their properties and regulated the registration for of the agency. This eventually helped to simplify commercial and non-commercial entities.

4.2 Institutional and Administrative Reforms

The Government has strengthened NAPR by Distancing back office employees from front broadening its functions, responsibilities and office functions allowed NAPR to limit interaction public service outreach. In the period from between those employees who were immediately 2004 to 2014, NAPR expended its services by responsible for making decision and the citizens. absorbing an archive that was previously kept Back office personnel who were experts in their under the technical inventory bureaus of local respective fields started to receive citizens’ authorities, acquired rights to register movable requests via operators who served the agency by and immovable properties and gained rights to accepting citizens’ requests in front offices. Hence, register properties that were placed under the citizens no longer knew who was responsible for collateral obligation upon request of the tax making a decision to process their requests and authorities and the banking sector. In 2005, the back office employees taking the decisions had Chamber of Notaries handed the agency the right no direct interface with the customer. to register restrictions on property utilization imposed by public and legal entities. In 2010, the Moreover, the agency’s IT unit developed a system Ministry of Finance gave up in favor of the agency that helped to randomly assign tasks between the function to register commercial and non- back office experts and front office operators. An commercial entities. 2011 was marked by granting operator who accepted citizens’ requests did not the agency geodesy and cartography functions. know who in the back office would be processing In 2012, the agency became responsible for this request. The development of this system registering citizens’ political unions and acquired would not have been possible without proper ICT the right to perform real-estate numeration. infrastructure. The split between the back office The same year, the agency started elaborating and front office helped to minimize corruption the addressing system nationwide and began in the agency and allowed the management address numeration in the capital city. In 2014, the to further advance and reform the institution agency became responsible to register municipal (Interview with a respondent, 2014). boundaries nationwide (NAPR, 2016). Prior to the establishment of Public Service Halls, Alongside the massive institutional reform, the NAPR had only one office in the capital city. agency management started the modernization This was a period when the agency had already of the administrative structure. The first, most elaborated the back office front office business important decision that the NAPR management practice. However, the workflow still remained took was to delineate functions and high and the agency could not adequately cope responsibilities between Back and Front Offices with the citizens’ demand. in the public service delivery chain. As corruption In order to reduce workflow, the agency had mushroomed when immediate decision management decided to introduce a concept makers had direct interactions with citizens, the of “authorized customers.” The authorized main purpose of the introduction of the One- customers are those organizations who are Stop-Shop model with a clearly separated Back given the right to access the NAPR database. By Office and Front Office was to eliminate the bad delegating the rights to third parties to access its practice of corrupt business dealings. database, in this particular case to banking sector

19 actors, the agency broadened its services almost were part of the Ministry of Justice. The Chamber without spending a penny on infrastructure of Notary of Georgia which was a suspect in development. Banks started offering customers corruption cases required immediate attention. property registration services on the spot, in their At that time, notarial bureaus were obliged respective regional bureaus. Customers who were to register notary acts in a special registration seeking bank loans or any other type of financial journal. They were required to assign each act a service in return of collaterals or mortgages number and indicate the time of registration. If an were given the opportunity to use this service act A was registered at, for instance 1 p.m. an act B without accessing directly the agency. It reduced must have been registered afterwards as required the large customer turnover at NAPR offices, by law. However, notaries tended to leave time and simplified customer service and reduced time for number slots in the registration journal empty. property extract issuance drastically (Interview The reason was to register anything with the back with a respondent, 2016). This became possible date if necessary, thus, opening opportunities thanks to well-established back office front office for individual or commercial customers to pay business processes under the OSS public service bribes for performing this type of registration for delivery model. whatever reason. By gaining access to NAPR services, banks NAPR in cooperation with the chamber introduced started serving as front offices for the agency. a registration software that restricted registration Moreover, banks started paying certain fees of acts by hand. As of this moment, notaries for using the service, thus, contributing to the were obliged to register notary acts through the financial sustainability of the agency. Besides, software which was impossible to manipulate NAPR requested banks to serve any customer, easily. Due to the fact that the Chamber of Notary notwithstanding whether they were interested did not have institutional capacity and expertise in receiving financial services or not from a bank to do these changes alone and because both of (Interview with a respondent, 2016). This request the institutions were under the umbrella of the served as a pre-condition for granting banks the Ministry of Justice, NAPR decided to offer this status of “authorized customer” (GoG, MoJ order service to the chamber so that it could reform 509, 2011). malfunctioned business practices quickly and effectively. Alongside the Chamber of Notary, the Authorized access, data exchange and integration agency assisted the State Procurement Agency of critical information into the IT system of a third to introduce an e-procurement system. In return, party is regulated by an order of the Head of the these organizations paid a certain amount for the Data Exchange Agency of Georgia. It requires a services they received from NAPR. Usually, NAPR package of special standards in any organisation does not seek to receive financial gains from sister to be introduced to use services offered by state institutions and asks fees only to cover immediate institutions. The agency which alongside NAPR expenses, there is no financial benefit for the falls under the subordination of the Ministry agency when assisting other state institutions of Justice regularly monitors and observes (Interview with a respondent, 2014). adherence to standards and obliges commercial entities or any third party to provide information The introduction of the One-Stop-Shop (Back if changes occur in an already audited system Office Front Office) public service delivery model (GoG, MoJ, DEA order 6, 2013). has had a tremendous impact on the further evolution of services in the state institutions. The The technological advancement of NAPR system requires constant attention, monitoring encouraged other state institutions to cooperate and technological update to meet customer with the agency closely. NAPR started designing demands. Plus, the employees serving in either business practices for other sister agencies which 20 office need to be provided with training in order expertise for the system to function. And finally, to improve their skills and knowledge for the both of them need to be capable of using rapidly system to operate. Front office employees need changeable software and hardware technologies. to have customer service skills while back office personnel need to strengthen their subject matter

4.3 Technological Transformation

In tandem with legislative, administrative and correct data available for users. The ICT Division institutional changes, the agency embarked on assisted the agency to make land administration reforming the technological base of the system. and business register systems transparent, The introduction of modern Information and thus, making information publicly available to Communication Technologies (ICT) has played a stakeholders. By opening up its database to special role in the development and success of third parties upon authorization, it simplified the registration system in Georgia. At the initial interaction with municipalities, authorities stage of the technological reform, the agency and businesses. It has contributed to NAPR’s equipped territorial offices with computers, becoming a leading e-authority in Georgia (NAPR, provided network and internet. As of 2006, the IT strategy 2011). Recently, NAPR in cooperation agency personnel started utilizing new software with Bitfury has started a pilot project to link the solutions actively. This allowed NAPR to offer property registry to a blockchain technology. citizens the registration services online in a faster This could offer even more secure and reliable and simplified manner. property registration system to citizens. However, it is a new and innovative approach that still Economic development has increased the needs to be tested before it is broadly introduced demand on property registration in 2007. This (Interview with a respondent, 2016). increase was especially noticeable in those cities and regions that were economically very active. To The agency’s corporate vision is to be a guarantor tackle the high demand effectively and to respond of business and property registration in the to citizens’ needs NAPR introduced services for country. Therefore, the value discipline of ICT has “authorized customers” which was based on been built around the following three principles: the One-Stop-Shop (Back Office Front Office) customer intimacy, operational excellence and public service delivery model and simplified the product leadership. Each dimension has its own registration procedures. This helped to reduce characteristics. Customer intimacy values the registration processing time and made services closeness to customer representatives in its less expensive. This was made possible through organizational vision, while in terms of business the development of reliable technological processes it prioritizes short lead time and a solutions (NAPR, 2016). flexible system. In consideration of technological advancement, it prioritizes the integration of best ICT became the backbone and important products and services. As for sourcing, it sees the contributor for the success of NAPR. The potential in creating best solutions via a strong introduction of ICT solutions automated the architecture and customer skills. internal business process in the agency. Constant innovation and searching for new ways to Operational excellence seeks to find economy of modernize the system made the business process scales through the centralization of organisational more effective and helped to reduce service structure. In terms of business processes, it delivery time and cost. It provided secure and advertises high availability. Adaptation of stable business operations and made reliable and standard products falls under its technological 21 vision while in terms of sourcing it heavily relies All aspects of the reform have contributed to its on outsourcing to achieve better quality and low current form. Design and evolution culminated cost. in the form of Public Service Halls also known as Justice Houses at regional level and Community And finally, product leadership sees the closeness Centres at community level. Therefore, it is to product development as an important interesting to describe how public services are factor in its organizational culture. In terms of provided today through these two structurally process sophistication, it advocates for research different, but strategically similar institutions. and development via IT and for technological advancement it prioritizes the design of its own Public Service Hall is a semi-independent unique IT solution. As for sourcing, it sees internal organisation, a legal entity of public law under skills as an important factor in maintaining the subordination of the Ministry of Justice. While a unique and distinctive character (NAPR, IT Community Centres fall under the management strategic 2011). of the Service Development Agency of Georgia (SDA). SDA is yet another legal entity of public The business processes and organizational law established in 2012. It inherited functions structure of NAPR appears to put emphasis of the Civil Registry Agency of Georgia and is on operational excellence. Nonetheless, some subordinated by the Ministry of Justice. The aspects of the other two dimensions are partially agency has absorbed all functions of the CRA integrated in the design of the system. and is given the responsibility to advance public The reform of public service delivery in Georgia services in the entire governance structure in the was neither an easy nor straightforward process. country (MoJ, SDA 2016).

5. Public Service Halls also known as Justice Houses of MoJ

Public Service Hall (PSH) was established in 2012 to other state or non-state institutions to by the order of the Minister of Justice. In 2015, sophisticate services and to enter into agreement the Ministry of Justice made certain revisions in with institutions with the purpose of offering its statute and today, the agency has rights to services to citizens as well as organizations (MoJ, represent its interest vis-à-vis third parties, has its order 85, 2015). own state balance, identification code, account in commercial banks and in the state treasury, has The Minister of Justice has a right to appoint a symbol, a stamp as well as other characteristics and dismiss the executive director of PSH. The necessary for a legal entity of public law. PSH has executive director has four deputy-directors the right to issue any document either in manual with their respective field of responsibility. The or in electronic format (MoJ, order 85, 2015). appointment and dismissal of a deputy-director must be agreed with the Minister of Justice. In The main purpose of PSH as stipulated by the law case of absence of the executive director, one of is to provide services offered by public as well as the deputies takes the responsibility to run the by private agencies through One-Stop-Shop (Back agency (MoJ, order 85, 2015). Office Front Office) model of service delivery. It is instructed to support government service The management structure and interaction delivery and is expected to design and to offer between the PSH central office and regional public services through innovation and diversity. bureaus are highly centralized. Each regional The agency is expected to provide consultation bureau has a manager responsible to ensure the

22 daily operation of an office. The executive Picture 4 - Justice House director of PSH in in Gori, Eastern Georgia consultation with the Minister of Justice appoints or dismisses a manager. A manager can have deputy managers who are appointed by the executive director of PSH (MoJ, order 85, 2015). Regional bureaus are expected to actively engage in the service development of the agency. They provide advice on product development and procedures impro- their model was high from other state agencies. vement, however, the final decision rests with the They wanted to either establish a similar model head office. of service delivery or use either CRA or NAPR to better reach out to the population. Therefore, an Public Service Hall is a space where the state idea to establish one public space where citizens provides more than 200 public services to could have had the possibility to receive all public citizens or any other interested parties in a timely, services offered by the state was entertained. The effective and customer friendly manner. Most unification of substantially diverse services was a of the services offered via PSH fall under the challenging task. On the one hand, it required the exclusive responsibility of the state. Documents development of a proper business logic to bring such as birth and marriage registration or ID card services together in order to effectively and timely and passport issuance are produced in the hall provide them to citizens. On the other hand, it was in a simplified and satisfactory form for citizens. important not to jeopardize the already existing Public Service Hall even offers public services in a model which functioned reliably. The transition JUSTcafe. This is a comfortable cafe located inside should have been as less painful as possible. Tbilisi Public Service Hall where customers have the possibility to receive the necessary public The new organizational structure needed to satisfy services while also enjoying coffee or local cuisine several criteria. It should be able to offer a large (Annex I, PSH, MoJ, 2014). number of services, should be easily accessible to citizens geographically, should offer services At the initial stage of public administration in a timely manner and should reduce service reform, the Government mandated CRA and waiting time for citizens. Based on these criteria NAPR to establish a One-Stop-Shop model of the Ministry of Justice elaborated the concept of public service delivery. These were two semi- PSH as a front office for the ministry to provide independent agencies managed to transform services to citizens. Any action or activities related the service delivery culture in the country. to services must be channeled through PSH. Thus, However, both were under the management of PSH became the public service sales and intensive the Ministry of Justice, with two independent communication body of the ministry. One-Stop-Shop models. Interest to replicate

23 5.1 Functional Management of PSH

PSH as a front office of the Ministry of Justice and discusses produced recommendations, sums major service provider has an obligation to be up decisions and agrees on the quality of actively engaged in service design, elaboration a product and on changes in the product and implementation. PSH directly interacts production chain; with citizens and is well aware of needs and necessities customers may have. Therefore, the • Creating and redesigning services and agency is in the best position to formulate new procedures – a respective agency in the public services, redesign old ones as well as back office is responsible for creating new provide consultation to other service providers to products, optimizing processes for service streamline procedures and processes. delivery, rewriting procedures and developing instructions, testing and adapting a service to Moreover, PSH has a function to communicate be offered via PSH; with customers. It plays a major role in shaping the opinion among customers about the nature • Technical and administrative support – a and value of the administration. Transparency, respective agency in the back office ensures openness and constant communication with that a software solution is designed for a citizens are the guiding value of the agency. service to be provided, provides trainings for To maintain and strengthen the image of personnel to use a software, familiarizes them the administration, PSH must ensure that it with procedures, concepts and the service has properly set management standards and delivery chain and performs any other task functions. necessary to implement the service;

Interaction between PSH as a front office and • Launching new products/services into the other agencies in the back office during the service delivery line – PSH is responsible for service design, development and implementation ensuring that services reach their customer in process has a circular character and consists of: a timely and customer friendly manner;

• Situation analysis and data gathering - this • Communication support – PSH and a function is performed by PSH and includes respective agency in the back office are studying the issues affecting existing responsible for effective communication for services, gathering information to elaborate services provided through the agency (MoJ, new services, defining indicators to detect PSH marketing strategy, 2010). irregularities in service provision, evaluating It is important for the agencies engaged in the effectiveness of services and assessing the service design, elaboration and implementation quality of services provided; to have functions adequately distributed. There • Analysing and producing recommendations should be a well-thought service delivery chain – PSH constantly observes and evaluates the elaborated in order not to hinder cooperation quality of the service chain and develops between front and back office agencies. recommendations in case of irregularities and In the case of Georgia, back office agencies ineffectiveness; remain major players in the service production • Discussions, consultation, making decisions chain. Even though, they do not have direct on new products and process elaboration interaction with customers any longer, they have and development – PSH in cooperation all functions to operate effectively, have their own with a respective agency in the back office management and organizational structure. They have everything necessary for an organisation 24 to operate, except direct communication with or to streamline service provision processes. A customers (Interview with a respondent, 2016). respective agency in the back office studies the request, organizes a consultation meeting with Back office agencies deliberately handed the the front office in case of necessity and develops representative function to PSH which serves as an optimal solution for the request. Afterwards, a front office for them. PSH analyzes products, it designs a new product/service or redesigns gathers information that it acquires from an old one. In essence, it provides PSH with customers and provides recommendations to administrative and organizational support in back office agencies to design new products order for a service to be launched.

5.2 Classification and Nature of Public Services

Citizens receive various public services either by related services are powered by Service personally approaching Public Service Hall or Development Agency; power of attorney is via e-governance in an online regime. There are offered by the Notary Chamber; National Bureau several agencies that provide services through of Enforcement offers services to execute the PSH. Citizens or any other third party can receive decisions made by court order; Training Center of a myriad of services at PSH, including real- Justice offers judicial consultation and trainings estate, land, individual or commercial enterprise for customers and Minister of Education uses registration provided by NAPR; passport and ID PSH to provide school attestation certificates to issuance, civil acts registration and immigration citizens.

Picture 5 - Self-Service Area at Public Service Hall in Tbilisi

25 Picture 6 - Quick Service Area at Public Service Hall in Tbilisi

The complexity of public service provision provided. There is a common services area and requires thorough planning. Services are an area for corporate customers. Corporate dichotomized into two broad, procedural and customers include organisations that have conceptual product groups. The procedural intensive communication and are active users of group includes services triggered by the demand services provided by the agency. Generally, they from customers. Notably, these are the services are not only customers but also are considered that are mostly used and are highly requested to be partners of the agency. These could be by citizens, including civil and public registration any large scale commercial or non-commercial services, services offered by notary bureaus, entities (MoJ, PSH marketing strategy, 2010). documents from national archive, cadaster maps etc. The second, conceptual group of services The common services area is used by customers covers products that play an important role in who do not have corporate status. These are strengthening the brand image of PSH. Services citizens, small organizations or any other third such as judicial consultation, trainings and party. This is an open and transparent space where seminars for customers fall under this category. customers are treated equally, in a timely and Even though, all services taken together ensure customer friendly manner. This space is divided that the PSH brand is strongly and positively into self-service, quick and long service areas. positioned in the administrative service delivery In the self-service area, customers can use structure, the first group does this via services automated services, such as take a photo for a that are process oriented while the second group passport or pay fees for services etc. The quick contributes by emphasizing the importance of service area covers services that do not take a emotional value in service provision (MoJ, PSH long time to produce. This can include the receipt marketing strategy, 2010). for an already produced documents. PSH recognizes the importance of delineating The long service area provides services that take areas in terms of the character of the services longer to produce and may require additional 26 Picture 6 - Long Service Area at Public Service Hall

documentation to be supplied by a customer (PSH, 2016). A structure of PSH from a customer perspective in diagram I looks as follow (Diagram 1). There are currently 17 regional Public Service Halls in Georgia. Each of them is connected to the central office, is engaged in service design and is providing more than 200 public services to citizens. Their service outreach is further strengthened by Community Centres which will be further described in the study.

Diagram 1 – structure of Public Service Hall as seen by customers (PSH, 2014).

27 6. Community Centres of the Service Development Agency of Georgia

The Service Development Agency of Georgia (SDA) At the inception stage of the Community Centres, was established in 2012 as a legal entity of public SDA opened 6 pilot centres to observe and analyze law by the order of the Minister of Justice. SDA its operation and impact on the community. The has absorbed the functions and organisational success of the initiative became evident rather structure of the Civil Registry Agency. Hence, by soon. Communities started utilizing the public the time of its creation, the agency had already services offered in the centres. The reasons were inherited a rather well advanced structure and multifold: Citizens could receive services faster qualified personnel. Apart of civil registration and easier in the immediate vicinity of their tasks, SDA was instructed to design innovations communities. Moreover, local municipalities and generate new ideas for public service realized that the centres positively impacted the modernization and development. The Ministry image of municipalities. A customer satisfaction of Justice empowered the agency to create survey conducted in 2013 by ACT, a local research instruments for the development of strategically and consulting company, showed that 61 % of important projects and to initiate reforms in the residents had heard about the existence of the public sector. Plus, it became responsible for community centre in their village. 85 % of citizens making decision on immigration issues as well had received the information about the centre as providing document legalization and apostil from their neighbours and friends. ACT also services (MoJ, SDA order 117, 2012). asked citizens where they acquire public services generally. 58 % of local residents responded The idea for developing Community Centres first that generally they receive public services in the appeared in 2011. The Government of Georgia village. More than 80 % of those who received supported and approved an “Introduction of public services said that they acquired them via E-governance in Local Governments” project community centres. The top ten public services (GoG, order 2250, 2011). The project proposed that citizens frequently request in the community by CRA and the European Union (EU) Mission in centres are: payment of communal utilities, bank Georgia aimed at optimizing management at services, state pension, telecommunication municipality centres, improving communication services, social aid, passport and ID services, between municipal centres and trustee offices, registration of land, receipt of special support providing better services to local population, vouchers, computer and internet services and producing easily usable software solutions for registration of an immovable property. 90 % of service delivery, designing a legal framework for those residents who received public services the introduction of e-governance and developing in the centres expressed interest in using the appropriate infrastructure necessary for the Community Centres services repeatedly (ACT, operation of e-governance (SDA, project annex, survey 2013). Today, there are 43 Community 2011). As the CRA successor, SDA has taken Centres operating nationwide and 11 centres are responsibility to support and to further develop expected to be opened in 2017 (Interview with a the Community Centres nationwide. respondent, 2016; MoJ, 2016).

28 Picture 7 - Community Centre in Georgia

6.1 Nature and Functional Capacity of Community Centres

Community Centre (CC) is a multi-functional or village, SDA enters into an agreement with a infrastructure, based on the One-Stop-Shop municipality. The agreement has a conditional (Back Office Front Office) public service delivery character and sets out specific roles and model. It is equipped with the latest technology expectation for the parties engaged. The local and well trained local personnel. The staff municipality is obliged to grant SDA unrestricted which is locally hired ensures provision of the access to monitor quality control and dismiss, central government’s, municipal and private upon request any personnel who violates sector services through e-governance tools. The standards and jeopardizes the operation of the centres host the Trustee’s office, the municipality centre. For its part, SDA takes the obligation representative on a village level and offers to provide consultations in order to operate communities a public space to meet and to discuss the centre, grants the municipality access to issues of local importance. Local population has its database to operate the centre, ensures the an opportunity to access free internet, computers, quality functioning of software packages and in video conference equipment, ATM and Pay Box case of malfunctioning of it takes appropriate machines in the centres. Some CCs are in municipal measures to remedy the problem. SDA also ownership while others are on the balance of SDA. provides trainings to municipality personnel Income generated from the private sector, mostly and the necessary equipment to operate the through lease payments as well as funding from centre. The municipality does not have the right the state ensure their financial sustainability (SDA, to introduce additional fees for services and it development strategy and action plan, 2013). does not request financial resources from SDA to To establish a Community Centre in a community operate the centres (SDA, agreement 2014). 29 Picture 8 - Operators at Community Centre in Georgia

There are at least two operators working in each The Community Centre model uses a business centre and one of them serves as an operations structure which is similar to the business logic of manager. Operators undergo a set of trainings Public Service Hall, i.e. it serves as a front office for prior to appointment. Trainings and continuous those state agencies which design and produce education is offered by the Trainings Centre of services in back offices. Apart from the services Justice and consists of a theoretical training, an offered by the Ministry of Justice, it provides internship and case studies. Initially, operators get some other additional services requested by familiarity with the legal and administrative base communities. The list of services at CCs looks as of the system. Then they are sent to a territorial follow (refer to the annex II to see a non-exhaustive office to receive practical, hands-on knowledge list of services): of service provision and acquire experience • Civil registry services: e-ID, passport, birth through practicing service provisions via specially registration, secondary education attestation, designed case studies. In the end, an operator residence permit, repeated issuance of any must pass a test to verify his/her knowledge. civil acts, divorce registration, etc. Moreover, SDA provides continuous planned • Public registry services: property right and refreshment trainings to make them familiar registration, extract on real-estate, registration with legal and administrative changes, to practice of a right to build an estate on a land parcel, customer friendliness, software utilization etc. debtor pledge registration, etc. Operators must be able to master approximately • National archive services: a letter from archive five software solutions to provide services in a about divorce, death, birth, award, evacuation, satisfactory manner (Interview with a respondent, information on registration of physical and 2016). judicial entities, etc. 30 Picture 9 - Justice House in Borjomi, Southern Georgia

• Social services: a letter confirming that a family If for civil and public registry services the is registered in a social assistance database, responsibility is carried by the Service accepting citizens’ request for the need of an Development Agency and National Agency of auxiliary technical assistance, etc. Public Registry respectively, the responsibility • Agriculture services: paving and cleaning for social and agriculture services rests with of water canals, land mulching, excavation the Social Service Agency under the Ministry of work, vineyard care and protection, mowing, Labor, Health and Social Affairs and Mechanisator, pressing of hay, support during harvest, etc. a limited liability enterprise which is under the subordination of the Ministry of Agriculture (SDA, The list of services shows the complex nature CC website 2016). Each agency has an agreement of public service delivery in the Community with Service Development Agency to delegate Centres. There are diverse in terms of number and their services to CCs. Some services require fees character. In addition to the services provided to be paid by customers and others are provided by Public Service Halls, Community Centres for free. Services of the Social Service Agency provide services that are in demand in local, rural (SSA), for instance, are free for citizens to receive communities. More specifically, public and civil (Interview with a respondent, 2016). registry services are provided in parallel to social and agriculture type of public services.

31 7. Conclusion and Recommendations

During the last twelve years, the Government services to meet the high standards of customer of Georgia has implemented a number of friendliness and timeliness. The agencies must significant public sector reforms that succeeded develop robust and yet humanistic monitoring in eliminating petty corruption in public service mechanisms to balance between high standards delivery and improved government outreach of public service delivery and simultaneously, to citizens. However, the modernization of its minimize the pressure on personnel in this highly administrative structure and the implementation intensive public service delivery system. of a new One-Stop-Shop model of public service delivery has been a major challenge for the Even though the government considerably government. rationalized the administrative structure, there must be more thoughtful inter-agency The existing model is a result of the thorough coordination to improve horizontal interaction and continuous planning of those managers and between administrative units. Robust and administrators who initiated the reform in the genuine horizontal inter-agency communication first place. Timely and thoughtful utilization of will further strengthen cooperation within the Information and Communication Technologies administrative structure and improve knowledge has opened up new opportunities and laid the and information flow. That, eventually, will allow foundation for the introduction of network state agencies to design follow up monitoring governance. However, its potential still needs to to determine whether administrative activities be fully explored and realized by the state. actually achieve the intended outcomes and Moving public services into the internet space strategic goals. and increasing their accessibility enabled a profound transformation of public services that There are more specific and important lessons to were traditionally associated with bureaucracy be learnt while reforming a public administration and rigid procedures. However, despite this major system in any country. In the case of Georgia, it is transformation, there remains room to improve salient to highlight the following lessons learnt: for the system. For instance, in rural communities • Predictable strategic horizon and vision of the the level of service delivery is still considerably leadership on how to reform public adminis- lower, and the rural population cannot fully tration played a crucial role in the transforma- benefit from the improvements brought by the tion of the sector; recent reforms in the country. One of the main • Reducing the size of the traditional bureau- reasons for this is lack of awareness and the fact cracy by establishing more flexible and ad- that citizens residing in rural areas tend to have justable state structures/agencies and by sim- little or no knowledge and skills to use modern plifying administrative procedures helped the information and communication technologies. government advance reform faster; Surveys conducted by independent organizations • Creating smaller agencies that are responsible show that citizens are not sufficiently aware for their own actions allowed the administra- about the possibility for using public spaces tion to better coordinate the reform between at the Community Centres, and therefore their political appointees and administrators; utilization is very low in those communities • Reducing bureaucracy and simplifying admin- (ACT, customer survey, 2013). This shows the istrative procedures helped the government importance of ensuring genuine engagement of to better tackle corruption in the system; citizens in the reform process. • Continuous training, salary increases and ed- Another challenge is the constant monitoring of ucation of employees brought the necessary confidence in personnel; 32 • Introduction of the One-Stop-Shop ecosys- • Reliable citizens database helped state agen- tem, including software and hardware infra- cies generate more income by establishing structure, renovation of the old physical in- partnerships with private actors, especially in frastructure, elaboration of a legal framework, the banking sector; modernization of HR structure, improvement • The most important lesson to be learnt by any of organisational capacity to rapidly respond government is to begin the development of a to financial and administrative transforma- One-Stop-Shop public service delivery mod- tion, digitization of archive materials such as el by strengthening back office agencies and civil acts to strengthen citizens database and only afterwards focusing on the front office a well-planned public awareness campaign to architecture. A clear separation of functions deliver information to citizens all played vital and responsibilities between back and front role in the development of OSS in Georgia; office agencies is the main ingredient for the • Support from the donor community has had a success of the existing One-Stop-Shop model deep positive impact on the reform. Namely, in Georgia. the direct or indirect assistance provided by In spite of the challenges, today, the Ministry USAID helped GoG stay focused on the reform of Justice with its subordinated agencies is and continuously monitor progress. It helped undoubtedly in a leading position in terms of to upgrade the ICT infrastructure in order to knowledge and experience. It has acquired strong establish massive primary and secondary da- expertise while designing and making the Public tacenters capable of processing huge data Service Halls and Community Centres public faster and more efficiently; service delivery structures a reality. Generally, • Recruitment of IT personnel to develop qual- customers seem to be satisfied with the quality ity software packages to deliver passport, ID, and effectiveness of the services delivered. civil acts etc. in online uninterrupted regime However, it will require more time, research and as well as the creation of a Virtual Private Net- resources to observe the long term impact of this work was possible thanks to donor assistance; model on the trust between administration and • Even though donor support is important, it is citizens. not enough to reform a system. Governments must make a financial commitment to sustain the reforms;

33 References

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34 Government of Georgia, MoJ, DEA order 6, 2013. Public Service Hall, JUSTcafe, 2016. [online] MoJ. [online] Legislative Herald of Georgia. Available Available from: http://psh.gov.ge/main/texts/509 from: https://matsne.gov.ge/ka/document/ [Accessed 02/09 2016] view/1831344 [Accessed 25/07 2016] Public Service Hall, MoJ, interview with a Government of Georgia, Structure, Functions respondent, 2014 and Responsibilities of the Executive Branch, law 3277, 2004. [online] Legislative Herald of Service Development Agency, 2015. [online] MoJ. Georgia. Available from: https://matsne.gov.ge/ Available from: http://sda.gov.ge/?page_id=4806 ka/document/view/2062 [Accessed 19/07 2016] [Accessed 02/08 2016] Government of Georgia, MoJ, Establishing Service Development Agency, MoJ, an example Council of Public Services, law 760, 2004. [online] of an agreement between the agency and a Legislative Herald of Georgia. Available from: municipality, 2014 https://matsne.gov.ge/ka/document/view/58114 Service Development Agency, Community [Accessed 21/07 2016] Centres’ Development Strategy and Action Plan National Agency of Public Registry, MoJ, 2016. 2013 – 2014, 2013 [online] NAPR. Available from: http://napr.gov. Service Development Agency, Community ge/p/141 [Accessed 25/07 2016] Centres, EU project annex I, 2011 National Agency of Public Registry, MoJ, 2016. Transparency International, Corruption Perception [online] NAPR. Available from: https://napr.gov. Index, 1999. [online] CPI. Available from: http:// ge/p/146 [Accessed 25/07 2016] www.transparency.org/news/pressrelease/new_ National Agency of Public Registry, MoJ, 2016. poll_shows_many_leading_exporters_using_ [online] NAPR. Available from: https://napr.gov. bribes [Accessed 19/07 2016] ge/p/148 [Accessed 26/07 2016] Transparency International, Corruption National Agency of Public Registry, MoJ, IT Perception Index, report 2015. [online] CPI. strategy, 2011, pgs. 5-16 Available from: http://www.transparency.org/ cpi2015#downloads [Accessed 05/08 2016] National Agency of Public Registry, interviews with a respondent from 2014 and 2016; Weber Max, the Theory of Social and Economic Organization, The free press, 1964, pp. 333 - 337 Osborn P. Stephen, The (New) Public Governance: a suitable case for treatment? Emerging Wettenhall and Kimber, One Stop-Shopping, perspectives on the theory and practice of public Public Administration Review, Vol. 57, No. 5 (Sep. - governance, Routledge, 2010 Oct., 1997), Wiley, p. 463 Osborne David and Gaebler Ted, Reinventing Wimmer Maria A., A European perspective towards Government: How the Entrepreneurial Spirit is online one-stop government: the eGOV project, Transforming the Public Sector, Plume, 1992 Electronic Commerce Research and Applications 1, Elsevier, 2002, pg. 94 Public Service Hall, MoJ, Marketing Strategy, 2010 Woodrow Wilson, the study of public Public Service Hall, service structure, 2016. administration, political science quarterly, volume [online] MoJ. Available from: http://psh.gov.ge/ II, 1887, pp. 210 - 212 main/page/7/405 [Accessed 01/08 2016]

35 Annex I – illustrative price list of public services also known as public service menu in “Just Cafe” at Public Service Hall in Tbilisi (PSH, MoJ, 2014).

MENU Person ID card 10 days 30 Lari (electronic identity card) 5 days 40 Lari 3 days 50 Lari 1 day 60 Lari On the same day 65 Lari Passport 10 days 100 Lari (issuance of passport to citizens of Georgia) 5 days 120 Lari 3 days 150 Lari 1 day 190 Lari On the same day 205 Lari Birth Certificate (first registration of birth) 1 day Free of charge Marriage certificate (first registration of marriage) 1 day Free of charge Recurrent Certificates 5 days 2 Lari (birth, marriage, divorce, establishing of paternity, child adoption, change 3 days 7 Lari name/surname, death recurrent certificates) 1 day 17 Lari On the same day 27 Lari Single Entry Visa (issuance of single entry visa) 7 days 50 Lari Multi-Entry Visa (issuance of multi-entry visa) 7 days 360 Lari Recognition of Number of Heads 10 days 35 Lari Information Card 10 days Free of charge (issuance of information card to applicant/issuance of information card 5 days 2 Lari through power of attorney) 2 days 5 Lari On the same day 10 Lari Change of Permanent Residence Certificate 10 days 30 Lari (change of lost permanent resident certificate/change of permanent 5 days 40 Lari residence certificate because of registration on new address) 3 days 50 Lari 1 day 60 Lari On the same day 65 Lari Change of Temporary Residence Certificate (change of lost temporary permanent resident certificate/change of temporary permanent residence 10 days Free of charge certificate because of registration on new address) Real Property Registration of Flat 4 days 50 Lari (registration of right of property on flat/unit) 1 day 150 Lari On the same day 200 Lari

36 Sale-Purchase of Real Property 4 days 50 Lari (registration of right of property based on contract of purchase) 1 day 150 Lari On the same day 200 Lari Extract 1 day 15 Lari (extract on real estate) On the same day 50 Lari Rent 4 days 50 Lari (registration of raise/change/termination of right to rent on real property) 1 day 150 Lari On the same day 200 Lari Raise/Change of Lease 4 days 50 Lari (registration of raise/change lease on real estate) 1 day 150 Lari On the same day 200 Lari Termination of Lease 4 days Free of charge (registration of termination of right to lease on real estate) 1 day 150 Lari On the same day 200 Lari Technical Office 4 days 5 Lari (inventory plan, certificate-description) 1 day 15 Lari On the same day 20 Lari Seizure (certificate on public-legal restriction) On the same day 7 Lari Business Extract 1 day 15 Lari (extract on a subject of business) On the same day 50 Lari Individual Entrepreneur 1 day 20 Lari (registration of individual entrepreneur) On the same day 50 Lari Establishment of a company 1 day 100 Lari (registration of entrepreneurial and non-entrepreneurial legal entity) On the same day 200 Lari Certificate of Archives Composition of Household 10 days 9 Lari (recognition of composition of household) 5 days 12 Lari 3 days 14 Lari 1 day 16 Lari On the same day 18 Lari Property of Household 10 days 42 Lari (certificate on accrued property of household) 5 days 58 Lari 3 days 67 Lari 1 day 75 Lari On the same day 84 Lari Property of Household 3 days 67 Lari (certificate on accrued property of household) 1 day 75 Lari On the same day 84 Lari

37 Annex II - non-exhaustive list of services offered in the Community Centres

• Civil registry services: e-ID, passport, birth granting access to a commercial entity to registration, secondary education attestation, use public registry portal independently, residence permit, repeated issuance of any civil correcting of technical discrepancies in the acts, divorce registration, death registration, data of an already registered commercial travel document for refugees or for a person entity, registering amendments in the data with humanitarian status, fatherhood of already registered commercial entity, determination, permanent residence registering initiation of reorganization document, neutral ID and neutral travel procedures of a commercial entity, registering document, a document proving information of commercial or non-commercial entities identity, abandoning citizenship, termination involved in food production as operators, or loss of citizenship, granting citizenship, registering or terminating a status of de-registration of a person from a residence individual-entrepreneur, demanding an address or registration at a residence address, information on the legal status of a commercial registration of changes in name or surname, a entity, demanding certificate of origin for letter confirming the number of person living commercial or non-commercial entities, at an address, marriage registration; requesting a document copy from archive, request to register changes in foreign non-

• Public registry services: property right commercial or commercial entity’s certificate registration, extract on real-estate, registration of origin; of a right to build an estate on a land parcel, debtor pledge registration, registration of • National archive services: a letter from a commitment for a property, lending right archive about divorce, death, birth, award, registration, a document confirming rights on evacuation, information on registration of a real-estate, a document confirming a real- physical and judicial entities, a letter on estate seizure, mortgage registration, rent composition of commune, archive letter registration, heritage registration, registering on registration and de-registration on a a change in land status, amendment in specific address, archive letter confirming already registered data, rural land ownership membership in a cooperative, archive (acquired via land reform in 90s) registration, letter confirming land parcel borders/red demand of a document copy from an archive, lines, archive letter related to professional cadaster plan, registration of servitudes right, experience or education status, archive letter demand of a letter confirming legal status related to street or rayon name change, letter of ownership right from technical inventory confirming the rehabilitation of citizens after bureau, usufruct registration, registering the soviet repression in 1937, archive letter separation of a real-estate, registering confirming status of a repressed citizen by property sub-rent, rent registration, extract the soviet government in the period of 1922 confirming a legal status of a commercial – 33, archive letter confirming the extraction entity, identification of discrepancies in the of properties by the soviet administration in registration of a commercial entity, termination rural areas in the period of 1924-35, archive of insolvency proceedings of a commercial letter related to work experience, extract entity, registering start and termination of from archive containing information related liquidation procedures of a commercial entity, to history of a property (property passport), 38 archive letter proving secondary education, household subsidy/allowance, accepting archive letter related to name, surname or demands to approve or make amendments nationality status changes, a letter confirming in state pension, allowance or in social that the archive does not process a requested package assistance, providing information document, a letter related to various types of on state compensation and state pension requests, a letter proving rights for a property, packages, accepting requests to perform a letter proving marriage status and a letter family registration or de-registration in the proving the entrance of a building into state social assistance database, providing exploitation; information about social assistance package and providing a letter confirming that a

• Social services: a letter confirming that a citizen receives compensation/payment due family is registered in a social assistance to maternity, pregnancy, childcare or a new- database, accepting citizens request for the born adoption; need of an auxiliary technical assistance, providing information on the availability of • Agriculture services: paving and cleaning auxiliary technical assistance (for citizens of water canals, land mulching, excavation who require wheelchair, hearing equipment work, vineyard care and protection, mowing, etc.), accepting requests from employers or pressing of hay, support during harvest, enterprises to pay compensation in case of tractor services, processing crops by maternity, pregnancy, childcare or a new- herbicides, soil treatment, soil watering, soil born adoption, accepting requests to make plowing, pit excavation, sowing in the period amendments about registered family status of autumn and spring, waste cleaning services in the social protection assistance database, and processing of furrows. providing information on the availability of

39 40 41 The Regional Hub of Civil Service in Astana (ACSH), an initiative of the Government of Kazakhstan and the United Nations Development Programme, was established in March 2013 by 25 countries and 5 international organisations. It receives financial and institutional support from the Government of Kazakhstan and it relishes the backing of UNDP as the key implementing partner. The ACSH is a multilateral institutional platform for the continuous exchange of knowledge and experience in the field of civil service development, aiming at supporting governments in the region through fostering partnerships, capacity building and peer-to-peer learning development activities; and evidence-based solutions, informed by a comprehensive research agenda. The geographical range of participants stretches from the North America and Europe, through the CIS, the Caucasus and Central Asia to ASEAN countries, demonstrating that partnership for civil service excellence is a constant and universal need for all nations.

www.astanacivilservicehub.org

December, 2016 Astana, Kazakhstan