Strategy for Public Administration Reform in Ukraine 2019 Implementation Report TABLE OF CONTENT
3 Abbreviations 4 Introduction 6 1. Overview of progress in implementation of the Strategy for Public Administration Reform
9 2. Financing of the Strategy for Public Administration Reform 12 3. Progress in implementation of the Strategy for Public Administration Reform
12 3.1. Strategic planning, coordination of policy development and implementation
16 3.2. Civil service and human resource management 23 3.3. Accountability – organization, transparency, oversight 29 3.4. Administrative procedures, administrative services and e-governance
40 4. The way forward 42 ANNEXES 42 Annex 1. Delivery of PAR Strategy Implementation Plan in 2019 65 Annex 2. Achievement of PAR Strategy Indicators in 2019 68 Annex 3. PAR financing 71 Annex 4. Simplification of delivery of administrative services 74 Annex 5. Study of organizational culture in Ukrainian civil service
2 Strategy for Public Administration Reform in Ukraine 2019 Implementation Report
#PublicAdministrationReform ПЕРЕЛІК СКОРОЧЕНЬ ТА АБРЕВІАТУР
ASC Administrative services centre CEB Central executive body CMU Cabinet of Ministers of Ukraine DG Director General EU European Union HRM Human resource management HRMIS Human resource management information system NACS National Agency on Civil Service OECD Organization for Economic Cooperation and Development PAR Public administration reform RSP Reform staff positions SCMU Secretariat of the Cabinet of Ministers of Ukraine SIGMA Support for Improvement in Governance and Management Programme
3 Strategy for Public Administration Reform in Ukraine 2019 Implementation Report
#PublicAdministrationReform INTRODUCTION
The year of 2019 was marked by election of the new President of Ukraine, followed by the parliamentary elections that yielded a renewal of more than half of the Ukrainian Parliament’s composition. The ruling party installed the majority government. The hallmark of both elections was the wide public demand for renewal of power. Largely, these were the developments that were shaping the dynamics and direction of public administration reform in 2019. On September 19, the Parliament adopted the Law No. 117 amending some Laws of Ukraine to facilitate the ‘re-set of power’. It aimed to deliver radical renewal of the civil service and introduced, inter alia, some key changes in laws governing public administration, namely:
• Simplified the procedure of dismissal of civil servants;
• Simplified competitive recruitment in civil service;
• Extended powers of the cabinet of ministers and its secretariat concerning drafting of government acts.
An important change in the operation of public administration was a shift towards speedy adoption of laws requiring the Government to prepare and approve multiple amendments to regulations. The Government itself was subject to a reshuffle resulting in fewer ministries and some central executive bodies being reorganized. The Government declared an intention to digitalize public administration and began to energetically pursue this ambition.
Notwithstanding these political changes, the Government preserved its commitment to public administration reform, and the following initiatives were implemented in 2019:
• Increased role of the ‘centre of government’ and the National Agency on Civil Service in policy making regarding public administration;
• Consolidation of authority regarding delivery of administrative services;
• Approval of a common target model of a ministry based on the pilot reorganization of ministries in 2017-2019;
• The Concept of Reform Staff Positions expanded to cover all ministries;
• Approval of amendments to the Government’s Rules of Procedure;
• Vacancies portal career.gov.ua expanded to cover all categories of civil service positions in ministries;
• Launch of the mobile application DIIA, with functionality allowing to use electronic driver’s license and vehicle registration card.
Significant challenges in 2019 were:
• Weakened stability of civil service due to simplified dismissal procedure;
• Dismissal of a number of state secretaries and other senior civil servants;
• Reorganization of bodies of government;
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#PublicAdministrationReform • Frequent changes in civil service recruitment procedures;
• Sensitive issues regarding salaries of politicians and civil servants and decline in attractiveness of civil service;
• Speedy changes in legislation with heightened risk of mistakes.
Public administration reform requires cooperation between multiple stakeholders and strong communication support. In 2019, the European Union and other international organizations, together with the Ukrainian civil society, continued to be reliable partners of Ukrainian Government in furthering the implementation of public administration reform.
Preserving the strategic outlook of the reform, the Government decided to prioritize digitalization of administrative services, streamlining of internal management processes, upgrading of policy development processes, and improvement of overall quality of government decisions. The European principles of good governance provide a framework and benchmarks to measure Ukraine’s progress in reforming its public administration.
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#PublicAdministrationReform 1. OVERVIEW OF PROGRESS IN IMPLEMENTATION OF THE STRATEGY FOR PUBLIC ADMINISTRATION REFORM The public administration reform is being implemented in line with the Strategy for Public Administration Reform (hereinafter – PAR Strategy)1 adopted in June 2016, aiming to bring the system of public administration closer to the European Administrative Space. The PAR Strategy was designed based on the SIGMA Principles of Public Administration defining what good governance entails, in close partnership with Ukrainian and European experts.
In 2018, SIGMA carried out Baseline Measurement – the first comprehensive assessment of public administration in Ukraine. The findings confirmed the progress in pursuit of public administration reform and issued recommendations served as a basis for updating the PAR Strategy and Implementation Plan.
The revised PAR Strategy contains 21 performance indicators and 69 actions. Implementation timelines in 2019 concerned 49 actions of which 34 were fully implemented and one action was implemented earlier than planned, making the overall implementation rate at 71%. The remaining actions are in the process of implementation. Summary review of 2019 implementation is presented in Annex 1.
The revised PAR Strategy, for the first time, provides quantitative measures of implementation. Among 21 indicators, 2019 targets were established for 17 indicators, of which 11 targets (65%) were fully achieved, one target was partially achieved, and 5 targets were not achieved. Achievement status of PAR Strategy indicators is discussed in section 2.
Activities Indicators
Implemented Achieved 71% 65%
PAR COORDINATION
The overall high-level coordination of implementation of the PAR Strategy is carried out by the Coordinating Council for Public Administration Reform2 (hereinafter – the PAR Coordinating Council). It is composed of representatives of the executive authorities, Verkhovna Rada of Ukraine, Office of the President of Ukraine, and civil society, thus ensuring effective coordination and promoting openness and transparency in PAR implementation. International partners and other stakeholder are invited to participate in the meetings.
1 Ordinance of the Cabinet of Ministers of Ukraine No. 474 of June 24, 2016 “Some Issues of Public Administration Reform in Ukraine”.
2 The PAR Coordinating Council was established by Resolution of the Cabinet of Ministers of Ukraine No. 335 of May 18, 2016 “On Coordinating Council for Public Administration Reform”.
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#PublicAdministrationReform From the time of formal establishment, the PAR Coordinating Council has conducted 17 meetings, with three meetings taking place in 2019. During these meetings, the PAR Coordinating Council reviewed the PAR implementation progress and adopted decisions concerning the target structure of ministries and their involvement in the reform, discussed the proposed concept of civil servants’ salary reform, methodologies for analysis and optimization of business processes and procedures in government bodies, and addresses a range of other issued.
In addition, as part of the Financing Agreement to support the public administration reform, regular meetings to discuss the reform progress and status are held in the format of EU-Ukraine Strategic Dialogue. In 2019, two such meetings were convened during which the reform implementation progress, successes and challenges were discussed with the European side. This dialogue outcome is common understanding of the state of play and comprehensive support to the reform. A crucial resource for reform implementation is expertise provided by EU4PAR project.
Overview of PAR Strategy actions with implementation deadline by 31.12.2019 G I
Actions Implemented Not implemented Total (according to Implementation Plan) (or with implemen- (or with significantly tation on track) delayed implementation)
Strategic planning, coordination 4 / 67% 2 / 33% 6 of policy development and implementation
Civil service and human resource 19 / 90% 2 / 10% 21 management
Accountability – organization, 7 / 70% 3 / 30% 10 transparency and oversight
Administrative procedures, 5 / 42% 7 / 58% 12 administrative services and e-governance
TOTAL 35 / 71% 14 / 29% 49
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#PublicAdministrationReform Overview of PAR Strategy performance indicators with implementation deadline by 31.12.2019 G I
Actions Implemented Not implemented Total (according to Implementation Plan) (or with implemen- (or with significantly tation on track) delayed implementation)
Strategic planning, coordination 0 / 0% 1 / 100% 1 of policy development and implementation
Civil service and human resource 5 / 71% 2 / 29% 7 management
Accountability – organization, 1 / 50% 1 / 50% 2 transparency and oversight
Administrative procedures, 5 / 71% 2 / 29% 7 administrative services and e-governance
TOTAL 11 / 65% 6 / 35% 17
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#PublicAdministrationReform 2. FINANCING OF THE STRATEGY FOR PUBLIC ADMINISTRATION REFORM As in previous years, the PAR Strategy was financed from the national budget and international technical assistance. The largest share of financing was provided through the budget programme “Support to implementation of a comprehensive public administration reform”.
Budget programme 2019 Budget, thousand UAH
Support to implementation of a comprehensive 1,230,698 public administration reform
including salaries of reform staff 820,244
E-governance 23,900
Professional training of civil servants and local 95,100.1 self-government officials
Adaptation of civil service HRM to the EU 16,052.1 standards
TOTAL 1,366,750.2
The Law “On the State Budget of Ukraine for 2019” allocated 1,230.7 million UAH to the budget programme “Support to implementation of a comprehensive public administration reform”. In the reporting year, the funding under this programme was disbursed to central executive bodies (CEBs) responsible for delivery of the PAR Implementation Plan according to Government decisions and in agreement with the Budget Committee of the Verkhovna Rada.
Disbursement in 2019, million UAH
Salaries Other costs 539.0 100.6
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#PublicAdministrationReform PAR financing by years, million UAH
Planned Disbursed
1250
1000
750
1230.7 500 1060.7
639.6 250 422.6 422.6 300 290 0 2017 2018 2019 2020
In 2019, of the stated amount of funding 639.6 million UAH were actually disbursed, which makes 52% of planned expenditures. 539 million were disbursed as salaries with charges, of which 468.8 million or 87% were actually spent. 100.6 million were disbursed for other PAR activities.
The under-absorption is attributed to the low rate of recruitment and appointment of reform staff in 2019, since funding was disbursed throughout the year on the basis of actually appointed employees and announced competitions. A detailed description of areas of financing of PAR activities in 2019 is presented in Annex 3.
EU BUDGET SUPPORT
According to the Financing Agreement signed between the European Commission and Government of Ukraine in 2016 for the programme “Support to a Comprehensive Reform of Public Administration in Ukraine” (ENI/2016/039-569)3 (hereinafter – the Financing Agreement), the European Union provides budget support to Ukrainian Government. The EU funding is channelled directly to the national budget and is not strictly earmarked as PAR support. The amount of PAR financing from the national budget is determined annually within the regular budget cycle.
The Financing Agreement stipulates fixed and variable tranches. The annual fixed component amounts to 5 million EUR, whereas the amount of variable component is conditioned by achievement of indicators defined in the Financing Agreement for a particular year. The release of tranche and its size are determined on the basis of the EU evaluation of the implementation report prepared by the Ukrainian side.
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#PublicAdministrationReform In 2017, on the basis of evaluation of Financing Agreement implementation in 2016, Ukrainian budget received 10 million EUR. Achievement of 2017 indicators led to the disbursement of 15.5 million EUR in 2018, and achievement of 2018 indicators led to the disbursement of 12.1 million EUR in 2019.
On the whole, the Ukrainian budget received 37.6 million EUR of budget support in three years.
EU budget support by years, million EUR Maximum possible amounts, million EUR Actual disbursed amounts, million EUR
50
40
30 50 20 37.6
10 20 15.5 20 10 10 12.1 0 2017 2018 2019 TOTAL
3 Financing Agreement of December 19, 2016: https://zakon.rada.gov.ua/laws/show/984_002-16
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#PublicAdministrationReform 3. PROGRESS IN IMPLEMENTATION OF THE STRATEGY FOR PUBLIC ADMINISTRATION REFORM 3.1. STRATEGIC PLANNING, COORDINATION OF POLICY DEVELOPMENT AND IMPLEMENTATION
The centrepiece of good governance is government’s capacity to plan its activity in such a way as to be able to achieve the set goals with limited available resources while acting in a predictable and consistent manner. Decisions adopted by the government, including those related to draft legislation, should be well thought through, driven by hard evidence and consulted with relevant stakeholders.
Well-informed and coordinated government decisions require certain pre-requisites, including clarity regarding the list and typology of planning documents as well as ability of civil servants to effectively engage in policy development and ensure high quality of draft acts. Coordination of policy-making process and effective quality assurance procedures are also important contributors to efficiency of government decisions.
The PAR Strategy recognizes that currently the existing procedural, methodological, institutional and human resource pre-conditions necessary for high quality decision- making are not sufficient and can be improved. This assumption is supported by a comparatively low government input in Parliament’s legislative activity – only 30% of laws adopted by Parliament are proposed by Government versus 70% and more in Europe. More than 50% of activities stipulated by government action plans are not delivered on time and the adopted legislation, in the opinion of business sector, is of suboptimal quality.
In order to address these problems, the main objectives in this area include:
• Strengthening the planning capacity regarding activity of the Cabinet of Ministers;
• Defining a list of planning documents;
• Adopting a methodology for elaboration of planning documents;
• Aligning decisions with national budget capacity in medium-term perspective;
• Enhancing performance in the area of e-governance;
• Ensuring proper public and stakeholder consultations in the policy-making cycle.
In 2019, the following achievements were made in this area:
• New Government’s Rules of Procedure4 designed and adopted, introducing a procedural framework for optimal government decision-making;
• New methodologies designed to support policy making, for example, the Ministry of Finance approved an updated methodology for assessment of draft regulation in terms of impact on national budget;
• Quality assessment checklists introduced for review of draft acts of the Cabinet of Ministers.
4 Resolution of the Cabinet of Ministers of Ukraine No. 168 of February 26, 2020 “On amendments to the Rules of Procedure of the Cabinet of Ministers of Ukraine”.
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#PublicAdministrationReform IMPLEMENTATION OF ACTIONS PLANNED FOR 2019
For 2019, the PAR Strategy Implementation Plan envisaged 6 actions in this area, 4 of which have been implemented.
In the reporting year, the central focus was on elaboration of changes in the Government’s Rules of Procedure, as per item 2 of the Implementation Plan, since this is the procedural framework underpinning all government decision making processes.
The new Rules of Procedure has introduced important changes in the work of Government that include:
• introduction of a Schedule for preparation and submission of draft decisions for consideration by Government;
• establishment of a list of all documents considered at Government meetings (policy documents, draft laws, draft acts of the Present of Ukraine, draft acts of the Cabinet of Ministers);
• introduction of mandatory consultations with representatives of stakeholders that will be affected by public policy and regulations adopted by Government;
• obligation of the developer of government documents (draft policy concepts, draft law, draft resolution) to carry out analysis and identify Ukraine’s commitments relating to the European integration and the international practice of implementation of relevant EU acquis;
• introduction of inter-agency consultation procedure stipulating mandatory sharing of draft government documents with all ministries and other public authorities concerned with the draft as well as the Secretariat of the Cabinet of Ministers to collect their input;
• review of draft government documents (draft policy concepts, draft law, draft resolution) carried out by the Secretariat of the Cabinet of Ministers (Government Office for European and Euro-Atlantic Integration) at the inter-agency consultation stage focused on compliance with Ukraine’s international commitments relating to the European integration;
• abolishment of the procedure stipulating agreement of draft government documents with stakeholder bodies, and abolishment of mandatory agreement of draft government documents with the Ministry of Economy, Ministry of Finance and Ministry of Justice (according to the new Rules of Procedure, failure of these ministries to provide opinion to the draft within a set time limit shall not carry the suspension effect);
• focusing the work of Government Committees on reaching a common stance on a draft government policy and resolving any related divergencies of political nature;
• mandatory review by the Government Committee on European Integration of draft government documents to which the Secretariat of the Cabinet of Ministers
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#PublicAdministrationReform (Government Office for European and Euro-Atlantic Integration) provided comments with regard to their compliance with commitments relating to the European integration;
• mandatory requirement that draft laws proposed by the Government to the Verkhovna Rada are accompanied by EU acquis compliance reports signed by Deputy Prime Minister responsible for the European integration;
• mandatory compliance review of draft laws initiated by Members of Parliament with regard to Ukraine’s commitments relating to the European integration that should be considered by the Government according to Article 103 of the Rules of Procedure;
• introduction of minimum time limits for certain procedures stipulated by the Rules of Procedure (e.g. for consultations).
The Rules of Procedure stipulates transition from paper-based to electronic mode of elaboration, agreement, submission to the Cabinet of Ministers and expert review of draft acts. The new Rules of Procedure becomes effective on July 1, 2020.
To ensure effective implementation of new provisions of the Rules of Procedure and improve the policy-making process, several methodologies have been approved and their actual application has been launched. Thus, as stipulated by item 5 of the Implementation Plan, methodologies for stakeholder impact assessment and stakeholder consultations were designed and introduced. The Ministry of Finance also approved the methodology for budget impact assessment to be conducted for draft legal acts. When fully introduced, these tools will enable civil servants to deliver better estimates of budget costs for implementation of proposed policies and acts, providing valuable information for decision- makers. They will also serve as basis for civil servants’ training in 2020.
The Secretariat of the Cabinet of Ministers introduced checklists as part of standard operations to conduct compliance assessment of draft acts of Government, by establishing a set of quality benchmarks. Currently, there are four such checklists: compliance with Ukraine’s commitments in the area of European integration; quality of stakeholder impact assessment; legislative compliance; and consistency with legal drafting rules.
As stipulated by item 10 of the Implementation Plan, an electronic system based on Share Point was introduced to monitor achievement of performance indicators defined in the PAR Strategy. Designated staff members of the Secretariat of the Cabinet of Ministers and bodies responsible for achievement of indicators are able to enter data on implementation status together with necessary supportive documents.
Concentration of e-governance expertise (item 11 of the Implementation Plan) was achieved through creation of the Ministry of Digital Transformation, Unified State Portal of Electronic Services – DIIA Portal, and state enterprise DIIA.
The Ministry of Economy continues the efforts aimed to design a system of national strategic planning documents and the work on corresponding methodological guidelines, and has reached a final stage of elaboration of draft laws on the national strategic planning and amendments to the Budget Code, falling within the delivery of items 1 and 3 of the
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#PublicAdministrationReform Implementation Plan. At the same time, the adopted Rules of Procedure enhances planning on the level of the Cabinet of Ministers. The Budget Code adopted by the Parliament in the version of 16.01.2020 includes provisions on medium-term budgeting. A number of other methodologies will be developed in 2020, including the one on legal and regulatory drafting.
The Secretariat of the Cabinet of Ministers conducted a series of workshops on quality of impact assessment for ministries directorates (item 4 of the Implementation Plan).
Finally, testing was completed for a sub-system that would help optimize agreement of draft legal acts among CEBs and enable speedier processing of documents at all steps within the cycle (drafting, agreement with stakeholder institutions, legal review, and submission to the Government) (item 9 of the Implementation Plan). ACHIEVEMENT OF INDICATORS
The PAR Strategy defines three indicators to measure the progress towards more effective planning of the decision-making process, thus enabling to evaluate quality of adopted strategies, implementation rate and availability of reporting.
Share of implemented actions in the Government’s Annual Action Plan
This indicator enables to assess whether the Government’s planning is realistic and whether ministries and other CEBs have systems, procedures and capacity in place to ensure on- track delivery of planned tasks.
In 2018, this indicator was at 40%. For 2019, its target value was set at 45%. However, in view of the appointment of a new Government in August 2019 and changes in approaches to the strategic planning system, the end-of-the-year assessment of this indicator was omitted, but as of August 2019 it was at the level of 24%. Such implementation rate indicates that there is a need to design methodologies to improve planning and implementation of government plans. This is partially addressed in the updated Rules of Procedure that requires a more systemic use of legal drafting schedule. Share of strategies with annual reporting on implementation
This indicator is intended to assess whether there is monitoring and reporting on implementation of adopted documents, including strategies. Annual reporting provides evidence that a strategy not only exists as a formal document but is also actively tracked. It also exposes the culture of accountability in public administration.
There is no target value for this indicator for 2019; therefore, it was not assessed. For 2020, the target is set at 40%.
This indicator suggests that there is a need to revise and possibly abolish strategies that are no longer relevant, since the vast majority of strategies do not involve reporting. Such approach is envisaged in the updated Rules of Procedure. The findings also highlight the need to further improve procedures and enhance the culture of accountability.
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#PublicAdministrationReform Share of strategies adopted in the current year that meet the established requirements
This indicator establishes formal compliance of adopted strategies against the established quality criteria. The idea is that there is a direct link between higher compliance and better quality of planning.
There is no target value for this indicator for 2019; therefore, it was not assessed. For 2020, the target is set at 50%.
12 strategies were adopted in 2019; however, there were no approved requirements for such documents due to ongoing work on the revised Rules of Procedure and corresponding methodologies.
3.2. CIVIL SERVICE AND HUMAN RESOURCE MANAGEMENT
Creation of professional civil service is crucial as it forms the backbone of effective public administration. Making the human resource management in civil service more aligned with SIGMA Principles of Public Administration is one of priority objectives of public administration reform.
The main problems in functioning of civil service and human resource management in civil service in Ukraine continue to include absence of a full-fledged automated information system enabling prompt data collection on HRM; low motivation and responsibility for performance outcomes among civil servants; still imperfect competitive recruitment procedure for civil service positions. Since the majority of CEBs do not use modern HRM and professional training tools, there is lack of adequate expertise regarding civil service recruitment. Finally, improvement of the salary system, job classification and career development opportunities in civil service remain to be pressing issues of today. KEY ACHIEVEMENTS:
• Knowledge management portal pdp.nacs.gov.ua has been launched, serving as a common online base of education programmes and in-service training for civil servants;
• The PoClick system (HRMIS) has been rolled out for testing in three pilot institutions – NACS, Ministry of Digital Transformation and Ministry of Finance;
• The vacancy portal career.gov.ua has been expanded to include civil service positions in category A as well as categories B and C in ministries, with improved functionality and integration with other recruitment websites;
• Competitive recruitment procedure for civil service positions has been simplified;
• A study of organizational culture in civil service “The Civil Service Feedback Loop: Ukrainian local executive bodies and administrations” was conducted;
• Delegation of authority of head of civil service in a central executive body has been regulated;
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#PublicAdministrationReform • Possibility of contract-based employment in civil service is open for all position categories.
In the reporting period, the Law amending some Laws of Ukraine to facilitate the ‘re-set of power’5 was adopted. The main intention of the legislature was to simplify appointment and dismissal in civil service. The law amended some legislative acts regulating activity of some institutions, in particular regarding special conditions of employment in civil service, legal status of civil servants, powers of heads of civil service, abolishment of the practice when appointment of heads of organizational units had to be agreed with third parties.
The goal of the PAR Strategy in this respect is to build professional, integral, politically neutral and citizen-oriented civil service.
The key focus of the PAR Strategy in the area of civil service and HRM is on:
• Achieving a more effective and transparent civil service through automation of processes and HRM systems using state-of-the-art information and communication technology;
• Introducing and maintaining a civil service recruitment system based on Principles of Public Administration that is transparent, compatible with best practices and secures recruitment of most professional, competent and motivated people;
• Rolling out a modern, holistic, agile and flexible system of professional training of civil servants with well-developed infrastructure and proper resourcing, oriented towards building of competencies and professional training needs of civil servants;
• Providing civil servants with adequate work conditions, including competitive, transparent and understandable remuneration system;
• Nurturing organizational culture in civil service based on such values as achievement of results, ownership, innovation, and open communication. IMPLEMENTATION OF ACTIONS
In this area, the PAR Strategy Implementation Plan stipulated 21 actions for 2019, of which 19 have been implemented.
As per items 12 and 13 of the Implementation Plan, the work on development of HRMIS modules continued. At the end of the year, NACS launched piloting of the new PoClick system. Piloting is already underway in three institutions – NACS, Ministry of Digital Transformation and Ministry of Finance. The system will improve data sharing between public authorities regarding HR planning and recruitment, employment structure, HR statistics, in-service training and development, performance management and reward. It is expected that by the end of 2020 this system will be used by all ministries. Gradually, all public authorities in Ukraine will be required to use PoClick system.
As per item 14 of the Implementation Plan, training was delivered for HRM and accounting units from three pilot institutions (NACS, Ministry of Digital Transformation and Ministry of Finance) on the use of HRMIS.
5 Law of Ukraine No. 117 of September 19, 2019 amending some Laws of Ukraine to facilitate the ‘re-set of power’.
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#PublicAdministrationReform As per item 15 of the Implementation Plan, the Law of Ukraine No. 117-IX of September 19, 2019 amending some Laws of Ukraine to facilitate the ‘re-set of power’ was adopted. The law improved the procedure for admission to civil service by simplifying submission of information to participate in a competition (online application instead of submission of hard documents); opened up the possibility to conclude contracts for fix-term works and for limited number of staff; determined a mechanism for transfer of senior civil servants and possibility of delegation by heads of civil service; optimized the structure of pay and stipulated that the Cabinet of Ministers shall define the procedure for forming the payroll fund in public authorities (to apply common approaches to planning and distribution of relevant expenditures from the national budget).
As per items 16, 17 and 18 of the Implementation Plan, a series of changes were introduced in the Competitive Recruitment Procedure6, for example, testing as a competition stage in the Assessment Centre and posting of all competition announcements on the Unified Portal of Civil Service Vacancies (career.gov.ua). According to the updated procedure, mandatory testing of knowledge of special legislation is no longer required, and successful test results awarded earlier by the Assessment Centre can be re-used, thus providing better chances for external candidates in the competitive recruitment. Finally, in view of importance of managerial positions, one more requirement was added – integrity and ethical behaviour.
As per item 19 of the Implementation Plan, training was conducted for members of selection commissions on tools to assess professional competencies, organized by NACS. All in all, 601 persons received such training in 2019.
As per item 20 of the Implementation Plan, staffing of directorates in ministries was carried out by recruitment of reform staff throughout 2019. As of March 1, 2020, directorates employed 726 reform staff in categories B and C: 35 DGs, 7 deputy DGs, 161 heads of expert groups, and 523 government experts.
6 Resolution of the Cabinet of Ministers of Ukraine No. 246 of March 25, 2016 “On approval of the Competitive Recruitment Procedure in Civil Service”
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#PublicAdministrationReform Number of staff employed as reform staff in categories B and C as of March 1, 2020
Institution DGs Deputy DGs Govern- Heads of Total ment expert experts groups
Office of the President 4 - 3 6 13 of Ukraine Secretariat of the 3 3 63 18 87 Cabinet of Ministers Ministry of Internal - - - - - Affairs Ministry of Economy 3 1 60 20 84 Ministry of Foreign - - - - - Affairs Ministry of Veteran - - - - - Affairs Ministry of Defence - - - - - Ministry of Education 5 1 50 17 73 Ministry of Health 3 - 37 11 51 Ministry of Energy and 3 - 38 12 53 Environment Ministry of Social 2 2 65 21 90 Policy Ministry of 3 - 53 15 71 Communities and Territories Ministry of Digital - - 29 7 36 Transformation Ministry of 6 - 33 12 51 Infrastructure Ministry of Finance 1 - 4 3 8 Ministry of Justice - - 46 8 54 Ministry of Culture, 1 - 25 6 32 Youth and Sport NACS 1 - 17 5 23 TOTAL 35 7 523 161 726
Together with RSPs in category A, namely state secretaries in ministries, leadership of the Office of the President of Ukraine, Secretariat of the Cabinet of Ministers and NACS, in total 753 persons were employed in reform staff positions as of March 1, 2020.
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#PublicAdministrationReform As per item 21 of the Implementation Plan, the Cabinet of Ministers adopted Resolution No. 1034 of 11 December 2019 to adjust the RSP Concept7 by clarifying the goal of RSPs, target numbers of RSPs and by stipulating the possibility to introduce RSPs in all central executive bodies.
As per item 22 of the Implementation Plan, NACS was running an online resource for RSP candidates “New Civil Service – Key Insights in Simple Terms” on the web-platform “Community of Practice for Sustainable Development” (http://udl.despro.org.ua/), that included provisions of answers through the hotline forum and publication of relevant updates for candidates. On May 16, 2019, NACS conducted the Open Doors event engaging all regional centres. Throughout the year, NACS together with the Secretariat of the Cabinet of Ministers and Ministry of Justice represented civil service at three vacancy fairs.
As per item 23 of the Implementation Plan, NACS issued Order No. 188-19 of October 15, 2019 on approval of Methodology for professional training needs assessment for civil servants, heads, first deputy heads and deputy heads of local state administration, and local self- government officials, registered with the Ministry of Justice on November 13, 2019 No. 1157/34128. Its implementation will help focus training resources on most pertinent needs of civil service in terms of professional development.
As per item 24 of the Implementation Plan, 54 senior civil servants (in category A) completed in-service training under the programme “Leadership and HRM Technologies” at the Ukrainian School of Governance in 2019.
As per items 25 and 26 of the Implementation Plan, in 2019 significant progress was achieved in the civil servants’ salary reform. The PAR Coordinating Council at its meeting of June 20, 2019 discussed and approved a draft concept of salary reform that stipulates, inter alia, that a salary system for civil servants should be based on job classification considering functional types and institutional level of responsibility and introduces sub-categories. The concept was drafted on the basis of analysis of actual salaries in all central and local executive bodies conducted by NACS together with the Centre for Economic Strategy8.
Recommendations offered in the concept are partially implemented by the Law No. 117-IX on the re-set of power adopted on September 19, 2019, and the 2020 salary scheme designed by NACS and adopted by the Government9 incorporates the classification by levels of public authorities and position sub-groups. It also establishes increase of base salaries by 5-20% which will lead to larger share of fixed pay while the size of wage bill remains unchanged.
Changes have also been made in distribution of responsibilities. Thus, in order to concentrate HRM function in a single institution, the Government decided to transfer the policy-making function with regard to civil servants’ salaries from the Ministry of Social Policy to NACS10.
7 Ordinance of the Cabinet of Ministers of Ukraine No. 905 of November 11, 2016 “On approval of the Concept of Reform Staff Positions”
8 Following the analysis, the Centre for Economic Strategy published a series of briefs, e.g. How to make civil service salaries competitive and transparent?, August 2019, https://ces.org.ua/civil-servants-wages-brief/
9 Resolution of the Cabinet of Ministers of Ukraine No. 16 of January 15, 2020 amending Resolution of the Cabinet of Ministers of Ukraine No. 15 of January 18, 2017.
10 Resolution of the Cabinet of Ministers of Ukraine No. 581 of July 5, 2019 amending Regulation on the National Agency on Civil Service of Ukraine.
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#PublicAdministrationReform As per items 29 and 33 of the Implementation Plan, the work on the concept of civil service culture continued in 2019. Workshops and strategic sessions were organized for HRM staff, and a survey of civil service culture was conducted among civil servants in local public authorities. The survey covered 14,674 civil servants. It was aimed at identifying characteristics of the organizational culture in civil service, revealing its strengths and weaknesses and discovering values common for all civil servants. The results of these activities will be included in the draft concept. The key findings of the survey are presented in Annex 5.
In 2019, as per items 30, 31 and 32 of the Implementation Plan, a range of training activities were carried out at the Ukrainian School of Governance, National Academy of Public Administration (NAPA), Regional Institutes of NAPA, centres of re-training and in- service training of employees of public authorities, local self-governments, state-owned enterprises, institutions and organizations:
• under the broad programme “Human resource management in public administration” – 825 civil servants in category B were trained, including 380 from central government bodies and 445 from local executive bodies;
• to enhance knowledge and competencies in modern HRM approaches – 867 heads and staff of HRM units were trained, including 476 in category B positions and 391 in category C positions;
• under the broad programme “Performance appraisal of civil servants based on key performance indicators” – 472 civil servants in category B were trained.
As per item 34 of the Implementation Plan, the Cabinet of Ministers adopted Resolution No. 106 of February 6, 2019 that enacted Regulation on the system of professional training of civil servants, heads, first deputy heads and deputy heads of local state administrations, local self-government officials and local council members11. As per item 35 of the Implementation Plan, NACS prepared and submitted to the Cabinet of Ministers proposals on amendments to legislation that would expand the list of education providers that deliver professional training.
These decisions facilitate quality changes in the system of civil servants’ in-service training intended to provide for development of professional competencies of civil servants, heads, first deputy heads and deputy heads of local state administrations, local self- government officials, in order to meet as much as possible the needs of executive bodies in highly professional workforce. The Regulation on the system of professional training of civil servants, heads, first deputy heads and deputy heads of local state administrations, local self-government officials and local council members approved by Resolution of the Cabinet of Ministers No. 106 of February 6, 2019 will help create a modern, holistic, agile and flexible system of professional training with well-developed infrastructure, effective management and proper resourcing. Throughout the year, 2,781 civil servants were trained at the Ukrainian School of Governance, NAPA, Regional Institutes of NAPA, centres of re- training and in-service training of employees of public authorities, local self-governments, state-owned enterprises, institutions and organizations.
11 Resolution of the Cabinet of Ministers of Ukraine No. 106 of February 6, 2020 “On approval of Regulation on the system of professional training of civil servants, heads, first deputy heads and deputy heads of local state administrations, local self-government officials and local council members”.
21 Strategy for Public Administration Reform in Ukraine 2019 Implementation Report
#PublicAdministrationReform The Knowledge Management Portal (https://pdp.nacs.gov.ua/) has been launched as a common online base of educational and in-service training programmes for civil servants. Providers and teachers post information about their training courses and users can sign up online. The search function classified programmes by topics, forms of study and regions. As of February 24, 2020, the Knowledge Management Portal presented 508 programmes and registered 84 providers, 24 teachers and almost 11,000 users.
As per item 35 of the Implementation Plan, NACS prepared and submitted to the Cabinet of Ministers proposals on amendments to legislation that would expand the list of education providers that deliver professional training. ACHIEVEMENT OF INDICATORS
In this area, the PAR Strategy envisages 7 performance indicators to measure implementation progress regarding HRMIS, modern HRM practices, improvement of competitive recruitment in civil service, and ensuring sustainability and predictability of civil servants’ salaries. In 2019, 5 performance indicators were achieved.
Share of central executive bodies connected to Module 1 of HRMIS
The 2019 target value of this indicator was 25%. As of the end of 2019, the target had not been reached, and currently measures are being taken to ensure achievement. According the HRMIS software procurement contract signed in February 2019, phase one envisages the system roll-out in 18 executive bodies (ministries). At this point, development of HRMIS functional blocks has been completed as well as its initial testing. HRMIS has been rolled out for piloting in three pilot institutions – NACS, Ministry of Finance and Ministry of Digital Transformation.
Share of competitions for civil service positions in ministry’s apparatus for which testing is conducted centrally at the Assessment Centre established by NACS
This performance indicator is considered to be achieved. The target value, envisaged for 2019 as 20%, at the end of the year reached 94%.
The number of competitions for civil service positions conducted in 2019 was 49,890, with fully completed 46,834 competitions.
Share of existing civil service vacancies announced through career.gov.ua
The target value, envisaged for 2019 as 50%, at the end of the year reached 100%. According to the Competitive Recruitment Procedure enacted by Resolution of the Cabinet of Ministers No. 246 of March 25, 2016, all civil service competition announcements are published on the Unified Portal of Civil Service Vacancies (career.gov.ua).
Share of civil servants in category A who have been employed in civil service for at least one year and completed at least one training course under the leadership programme for civil servants
This performance indicator is achieved: 28.3% of civil servants in category A have completed training compared with the target value of 25%. 54 senior civil servants (in category A)
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#PublicAdministrationReform completed in-service training under the programme “Leadership and HRM Technologies” at the Ukrainian School of Governance.
According to the headcount report 191 persons were appointed to category A positions in 2016, 2017 and 2018.
Share of fixed pay component in the overall institutional wage bill (base salary and other mandatory payments)
This performance indicator is achieved: according to the assessment made by the Centre for Economic Strategy based on data provided by NACS12, by the end of 2019 it measured at 60% against the pre-defined target value of 50%.
Share of heads of HRM units who successfully completed training on performance appraisal methodology
The target value, envisaged for 2019 as 25%, at the end of the year reached 53.6%. NACS conducted training for HRM staff on the topic “Setting tasks and key performance indicators for civil servants”. 45 heads of HRM units participated in this training.
The HRM Council at NACS included 84 heads of HRM units.
Average number of participants in civil service competitions
The 2019 target was 5 persons; however, the actual rate by the end of the year was 3 persons.
The number of candidates to civil service positions in the reporting period was 156,000 persons, whereas the number of civil service vacancies in the same period with announced competitions was 46,834.
3.3. ACCOUNTABILITY – ORGANIZATION, TRANSPARENCY, OVERSIGHT
Accountable and streamlined public administration is a necessary pre-condition for building trust to the state and ensuring of adequate quality of public services. The PAR Strategy defines the following objectives in the area of accountability:
• achieve clear allocation of powers, functions and responsibility among executive bodies, creating effective accountability lines and interaction;
• improve internal organization of executive bodies, ensuring streamlined design and capacity to perform entrusted functions;
• provide free and user-friendly access to information about executive bodies and their activity.
Since adoption of the PAR Strategy, the reform of CEBs primarily focused on measures aimed to increase ministries’ institutional capacity for policy making and free them from non-core functions. Although the legislation defines ministries as leading policy-making institutions, in practice there has been a firmly established tradition of managerial activity, meaning that
12 Civil Service Salary Reform – the Way Forward, Centre for Economic Strategy, May 2019. https://ces.org.ua/wp-content/uploads/2019/05/public-wages_note_final.pdf
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#PublicAdministrationReform their work has been dominated by delivery of assignments rather than policy initiation. This state of affairs hampered ministries’ ability to identify, predict and prevent problems in society and considerably restrained the country’s reforms, since successful reform efforts are directly associated with effective activity and performance of ministries.
KEY ACHIEVEMENTS
• Introduction of methodology for optimization of processed in executive bodies on the bases of LEAN Government principles: the methodology has been approved and a pilot review has been conducted covering 60% of public authorities among which 20% have successfully reported on the reform of reviewed processes.
• Approval of new requirements to the structure of ministry’s apparatus aimed to separate policy development, policy implementation and support functions.
• Establishment of directorates was launched in all ministries.
• The unified system for processing citizens’ petitions and public information requests has been rolled out; the system uses modern communication tools such as messengers, chats and feedback.
• An experimental project was launched to create a ‘single entry point’ for processing citizens’ petitions, public information requests, reports about or from victims of human trafficking, domestic violence, gender-based violence, child abuse or reports about threat of such violence. IMPLEMENTATION OF ACTIONS
In this area, the PAR Strategy Implementation Plan envisages 10 activities for 2019, of which 7 have been implemented and 3 are in the process of implementation.
The work continued on preparation of amendments to the Law on Central Executive Bodies and the Law on the Cabinet of Ministers of Ukraine (item 37 of Implementation Plan). The concept of these amendments was discussed at the meeting of PAR Coordinating Council on February 21, 2019. The proposed changes include, inter alia, the possibility for ministers to build their own political teams, enhanced role of ministries in policy development, and improvement of the mechanism for ministers’ steering of subordinated CEBs.
Efforts continue to be taken to improve the system of performance management through key performance indicators set for civil servants (item 38 of Implementation Plan). In 2019, the Typical Procedure for civil servants’ performance appraisal was amended13 as it appeared necessary to clarify provisions implementation of which brought up certain questions from participants of this process and to adjust certain appraisal steps to make them simpler. The amended performance appraisal procedure is now more comprehensible for participants.
As per item 39 of Implementation Plan, the Ministry of Economy continues its work on development of a system if national strategic planning and related methodologies that would also incorporate improvement of planning procedure for CEBs.
In 2019, the system of electronic documentation flow (item 40 of Implementation Plan) was
13 Resolution of the Cabinet of Ministers of Ukraine No. 591 of July 10, 2019 amending Resolution of the Cabinet of Ministers of Ukraine No. 640 of August 23, 2017 and repealing Resolution of the Cabinet of Ministers of Ukraine No. 1047 of December 20, 2017.
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#PublicAdministrationReform introduced or modernized in 12 CEBs under the budget programme “National informatization programme”, and in 4 more institutions – under the programme “Support to implementation of a comprehensive reform public administration”.
The Cabinet of Ministers adopted Resolution No. 1034 of December 11, 2019 to address some issues of public administration reform, thus delivering early on item 43 of the Implementation Plan concerning requirements for the structure of ministry’s apparatus. The decision established common requirements for the organizational structure that apply to all ministries. It defines three major blocks in the ministry’s apparatus: policy directorates, units tasked with support functions and units performing other functions. To comply with this resolution, in January – February 2020 ministries updated their organizational structure creating in total 95 directorates.
At the meeting of November 18, 2019, the PAR Coordinating Council reviewed the NACS proposal that argued for introduction of a mechanism allowing for delegation of some functions of heads of civil service in ministries, heads of other CEBs to heads of respective structural units (item 49 of the Implementation Plan). The proposal was supported and on the basis of it the Government adopted a decision14 allowing for such delegation in public authorities. The delegation will help release heads of civil service from some routine duties, thus freeing up time for more strategic tasks.
As per item 50 of the Implementation Plan, in 2019 the Secretariat of the Cabinet of Ministers jointly with EU4PAR experts developed a methodology for analysis and optimization of business processes and procedures in government bodies based on LEAN Government model. The methodology was approved by decision of the PAR Coordinating Council of June 20, 2019 and circulated among all CEBs. Its main purpose is to provide tools enabling:
• Identification of core processes, their end results and performance criteria;
• Description of a process serving as basis of regulation for future standardization of processes;
• Identification of factors that reduce effectiveness and efficiency of processes;
• Creation of a framework for continuous improvement of processes.
Implementation of the methodology was supported through advice and training on application. During July – August 2019, representatives of 50% of CEBs participated in workshops; in total 263 persons were trained.
As a result, 60% of CEBs conducted analysis of selected processes and sent elaborated optimization passports to SCMU for verification, including proposals on how to address identified problems. 20% of institutions reported that they had adopted actions plans to implement these proposals.
An example of such optimization is streamlining and centralization of handling citizens’ petitions. The following was introduced as part of the experiment15:
14 Resolution of the Cabinet of Ministers of Ukraine No. 1041 of December 11, 2019 “On approval of delegation of some powers of head of civil service in central executive body”.
15 Resolutions of the Cabinet of Ministers of Ukraine No. 972 of November 27, 2019; No. 976 of November 27, 2019; No. 1145 of December 27, 2019; No. 91 of February 5, 2020; No. 128 of February 19, 2020.
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#PublicAdministrationReform • Legal framework for the work of a unified system of processing citizens’ petitions that covers executive bodies, Office of the President of Ukraine and other bodies subordinated to the President of Ukraine;
• Electronic system for receipt, registration, processing, transmission, addressing, review, analysis, monitoring of review status and outcomes, accumulation, storage, protection and record-keeping of citizens’ petitions and public information requests;
• Automated response to some petitions (requests) generated by software simulating conversation with the applicant (petitioner);
• A single database of petitions that in future would cover all executive bodies and thus help accumulate credible information about how petitions are handled and addressed in the system of executive bodies;
• Gauging of citizens’ satisfaction with their interaction with the state (Net Promoter Score (NPS) was used as a tool in this experiment);
• Processing of claims and reports of domestic violence, which starting from January 1, 2020 enabled commencement of implementation of Ukraine’s international commitments and legislative provisions aimed at combating domestic violence.
In order to define a central executive body responsible for policy development and implementation in the area of information access (item 51 of the Implementation Plan), in December 2019 the State Committee on Television and Radio Broadcasting prepared and submitted to the Cabinet of Ministers a draft resolution proposing to designate the State Committee to be responsible for this policy area. However, the draft was rejected because of changes in the set-up of CEB system, according to which the State Committee falls under the steering of the Ministry of Culture, Youth and Sport that should be responsible for policy making in this area. At the time of writing this report, the issue remains unresolved and needs to be addressed.
As per item 53 of the Implementation Plan, the Cabinet of Ministers adopted Resolution No. 493 of June 12, 2019 amending some Resolutions of the Cabinet of Ministers concerning functioning of official CEB websites, namely Resolution No. 3 of January 4, 2002 “On Procedure for publication of information about activity of executive bodies in the Internet”. According to the updated Procedure, Ministry of Digital Transformation is designated to be responsible for elaboration of recommendations regarding the design and modernization of official websites (portals) of executive bodies and official web-resources. ACHIEVEMENT OF INDICATORS
In this area, performance indicators are to reflect progress in building an effective system of accountability and interaction among CEBs that have clearly defined and allocated powers, functions and responsibilities, streamlined structure of apparatus enabling effective performance of functions, with free access of information about executive bodies and their activity presented in understandable and user-friendly form. The PAR Strategy establishes four performance indicators in the area of accountability: two indicators have
26 Strategy for Public Administration Reform in Ukraine 2019 Implementation Report
#PublicAdministrationReform implementation deadlines in 2019 of which one indicator was achieved.
Share of central executive bodies for which corresponding Member of the Cabinet of Ministers approved performance indicators for the upcoming year
The 2019 target value for this indicator was set at 20%, and the achieved value is 27%.
The indicator was assessed by reviewing annual plans of CEB activity for 2019. Upon SCMU request, responses were obtained and analysed from 48 CEBs.
The analysis of available CEB plans revealed that, out of 48 CEBs, 31 institutions had plans of activity approved by corresponding Member of the Cabinet of Ministers according to the established procedure, 7 institutions had elaborated plans that, however, had not been approved by Minister, 2 institutions had no developed plans, and 8 institutions relied on the Government’s Programme of Activity or some other act as guidance document.
CEBs having plans of activity
No plan Plan is in place Plan is approved in place but not approved by Minister
10 7 31
Inclusion of performance indicators
No plan Plan does not include Plan includes in place performance indicators performance indicators
10 25 13
The analysis also revealed that indicators were defined in 13 plans, of which 5 had performance indicators and 8 had activity indicators. Thus, the share of CEBs for which corresponding Member of the Cabinet of Ministers approved performance indicators for the upcoming year is 27%.
Even though this indicator is formally achieved, the analysis of available CEB plans revealed a number of problems:
• Not all CEBs have annual work plans, although the Budget Code requires that all budget users develop plans of activity;
• There is no common approach to drawing up plans of activity, and available plans
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#PublicAdministrationReform differ both in content and structure;
• There is no common approach to setting up performance indicators and some plans contain only activities without performance indicators.
In view of these findings, it is necessary to establish common approaches to drawing up plans of activity and to setting specific, measurable, achievable, relevant and time-bound objectives and performance indicators for executive bodies that are steered and coordinated through corresponding Members of the Cabinet of Ministers.
Share of central executive bodies that have published annual reports on achieved results
The 2019 target value for this indicator was not established, but the actual end-of-the- year achievement rate was 42%.
SCMU analysed the situation with publication of CEB reports about their activity. The analysis revealed that by the end of January 20 institutions had published their reports for the preceding year on official websites, one institution did not publish its report because it contained classified information, and other institutions were finalizing their reports and would publish them as soon as they are completed.
Share of ministries where the structure of apparatus is compliant with common requirements
The 2019 target value for this indicator was not established, but the actual end-of-the- year achievement rate was 80%. The indicator was assessed by reviewing the structure and staffing plans of ministries for compliance with the established requirements16. It is stipulated that all ministries should establish policy directorates to perform tasks related to ensuring of policy development in one or several areas of competency, coordination and monitoring of policy implementation, policy analysis and stakeholder impact assessment. The apparatus should also include a directorate for strategic planning and European integration to perform tasks related to strategic planning of activity and planning of ministry’s budget, European integration, coordination of ministry’s implementation of international commitments, and coordination of policy development in ministry’s areas of competency.
The analysis of the structure and staffing plans of 15 ministries that functioned as of March 1, 2020 revealed actual compliance in 12 ministries.
16 Resolution of the Cabinet of Ministers of Ukraine No. 179 of March 12, 2005 “On organization of the structure of apparatus in central executive bodies, their territorial units and local state administrations”.
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#PublicAdministrationReform The situation with establishment of directorates in ministries
Ministry Number of Date of approval established of staffing plan directorates (structure) in apparatus
Ministry of Veteran Affairs, Temporarily Occupied 7 31.01.2020 Territories and IDPs Ministry of Internal Affairs 4 12.02.2020 Ministry of Energy and Environment 11 17.02.2020 Ministry of Development of Economy, Trade and Agriculture 7 31.01.2020 Ministry of Foreign Affairs 2 14.02.2020 Ministry of Infrastructure 8 12.02.2020 (structure) Ministry of Education and Science 6 03.02.2020 Ministry of Health 6 07.02.2020 Ministry of Development of Communities and Territories 9 27.01.2020 Ministry of Social Policy 7 17.02.2020 Ministry of Digital Transformation 15 06.02.2020 Ministry of Culture, Youth and Sport 7 21.01.2020 Ministry of Justice 2 27.01.2020 Ministry of Finance 4 - Ministry of Defence - - Total 95
Share of ministries and other central executive bodies with websites meeting common standards
The 2019 target value for this indicator was set at 10%, but it was not achieved.
In order to make the new design of government websites user-friendly, the State E-Governance Agency developed common requirements17 for official government websites or common design code. It sets common standards for official website design in order to visualize government as a single system through the use of common interface, colour code, website layout, etc.
Currently, the new design code is implemented for the portal of the Cabinet of Ministers and NACS website. The adopted CMU Resolution requires that other executive bodies modernize their official websites according to the new standards.
In view of transformation of the State E-Governance Agency into Ministry of Digital Transformation in September 2019, related responsibilities have been transferred to the newly created ministry.
17 Resolution of the Cabinet of Ministers of Ukraine No. 493 of June 12, 2019 “On amending some Resolutions of the Cabinet of Ministers of Ukraine concerning functioning of officials websites of central executive bodies”.
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#PublicAdministrationReform 3.4. ADMINISTRATIVE PROCEDURES, ADMINISTRATIVE SERVICES AND E-GOVERNANCE
Despite a clearly defined course towards better administrative services, most services are still imperfect and have not been made convenient for users. There are several contributing factors to this situation. The first one is related to the fact that there is still no enacted law on administrative procedure, meaning that there are no common foundational administrative principles and no single system of safeguards for respect of citizens’ rights in administrative proceedings. Secondly, administrative services are not equally accessible, since some frequently claims services are provided by administrative services centres (ASCs) located in oblast centres. Thirdly, there is still observed inefficiency and duplication in gathering, keeping and sharing of data contained in national registries, there is still no data exchange in real time, and the existing registries reveal problems with completeness and quality of data.
In this area, the PAR Strategy aims to create conditions under which both natural and legal persons would receive accessible administrative services of good quality and using procedures that are convenient for them.
Improvement of administrative services is being tackled through the following measures:
• Implementation of general administrative procedure with basic safeguards;
• Better quality and accessibility of administrative services, including expansion and better performance of ASCs and decentralization of service provision;
• Systemic reduction of administrative burden on citizens and legal entities;
• Optimization and better performance of executive bodies through implementation of electronic inter-agency interaction and electronic documentation flow;
• Delivery of administrative services in electronic form. KEY ACHIEVEMENTS:
• Online services have been launched in the areas of construction and carriage by road. Mobile application DIIA was introduced making available electronic driver’s license and electronic vehicle registration card.
• ‘E-baby’ has been launched as a comprehensive service for parents of a newborn child integrating up to 10 services.
• 14 government IT systems have been registered in TREMBITA and data sharing has started between 4 registries.
• The network of ASCs has been expanded to 848 entities (as of January 1, 2020).
IMPLEMENTATION OF ACTIONS
In this area, the PAR Strategy Implementation Plan establishes 12 activities within implementation deadline in 2019, of which 5 were actually implemented.
As per item 55 of the Implementation Plan, the work continued on passing of the Law on
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#PublicAdministrationReform Administrative Procedure. The draft Law on Administrative Procedure was submitted by the Government to Verkhovna Rada (registration number 9456), but it was recalled on August 29, 2019 because of appointment of a new Government.
Later, the Ministry of Justice repeated submission of the draft Law on Administrative Procedure for consideration by the Cabinet of Ministers, but in February 2020 it was returned to the developer due to appointment of new composition of Government, to be submitted again according to the established procedure. At the time of writing this Report, the Ministry of Justice was preparing to submit the draft law again to the Government to be then introduced to Verkhovna Rada. Thus, item 55 of the Implementation Plan was not implemented in 2019.
The number of government registries registered in the National Registry of Government Electronic Information Resources held by central and local executive bodies has reached 32 (item 57 of the Implementation Plan).
As per item 58 of the Implementation Plan, 14 government IT systems were connected to the operational environment of TREMBITA, the system of electronic interaction of government information resources. By the end of 2019, automated data sharing was secured between the following registries:
• Civil status registry;
• Unified information system of the Ministry of Internal Affairs;
• Unified state automated registry of persons with benefit entitlement;
• State registry of individual taxpayers;
• State registry of mandatory state social insurance;
• Unified state demographic registry;
• E-Health – electronic medical information system.
As of January 1, 2020, 46 contracts were signed to provide connection to the electronic interaction system TREMBITA.
As per item 59 of the Implementation Plan, the Cabinet of Ministers amended Indicative Regulation on administrative services centre and Indicative Operational Procedures for administrative services centres. These amendments18 clarified the requirements for ASCs such as their accessibility for people with disabilities and other low mobility groups as well as setting up space for leaving baby carriages. It also established specificity of operations of local branches of such centres and administrators working at remote workstations.
The Ministry of Economy, in collaboration with the All-Ukrainian Association of Administrative Services Centres, prepared recommendations on requirements for ASCs and list of services that should be provided through ASCs depending on their functional capacity and discussed these recommendations with oblast state administrations. Elaborated recommendations on how to define requirements for ASCs and list of services
18 Resolution of the Cabinet of Ministers of Ukraine No. 714 of August 14, 2019 “On amendments to Resolutions of the Cabinet of Ministers of Ukraine No. 118 of February 20, 2013 and No. 588 of August 1, 2013”
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#PublicAdministrationReform to be provided through ASCs have been provided to the Ministry of Digital Transformation and the Ministry of Regional Development.
As per item 60 of the Implementation Plan, the Ministry of Economy conducted analysis of compliance of ASCs with established requirements regarding size of customer service area and list of services. As of January 1, 2020, there were 848 functional ASCs in the country: 407 ASCs were established by local self-governments (including 44 local branches), of which 209 ASCs (including 5 local branches) in amalgamated hromadas, and 441 ASCs were established by local state administrations (including 10 district centres in Kyiv city and 7 local branches). In addition, local self-governments created 161 remote workplaces for ASC administrators, including 139 in amalgamated hromadas, and also introduced 8 mobile ASCs. Detailed information about ASCs is published on the website of the Ministry of Economy under the section “Activity” in sub-section “Administrative Services”.
In the majority of ASCs (56%), the size of waiting areas and customer service area meets the established requirements: 21% of centres have area from 50 to 70 m2, 16% have the area from 70 to 100 m2, and 19% have the area above 100 m2.
During recent years, the number of services provided through ASCs increases with continuously better quality. In 2019, 9% of ASCs provided more than 200 services, 27% provided from 135 to 200 services, 54% provided from 50 to 134 services, and 10% less than 50 services. Shares of ASCs by size of service menu, % below 50 from 50 to 134 from 135 to 200 over 200
2019 10 54 27 9
2018 16 60 16 8
2017 20 63 9 8
0% 25% 50% 75% 100%
Thus, 90% of all ASCs provide more than 50 services. In comparison with previous years, the share of those providing from 135 to 200 services increased significantly.
In 2019, it was planned to provide ASCs with equipment for issuance of passports, driver’s license cards and vehicle registration cards (item 61 of the Implementation Plan). At its meeting of March 28, 2019, PAR Coordinating Council considered and supported the
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#PublicAdministrationReform proposal of the Ministry of Economy on the implementation mechanism for this activity. The Government adopted a decision on transfer of necessary funding19 and corresponding spending procedure20.
Lists of ASCs to be provided with necessary equipment were drawn up on the basis of review of local self-governments’ requests and recommendations agreed upon at the working session of October 28, 2019 involving Secretariat of the Cabinet of Ministers, State Migration Service, Ministry of Internal Affairs and NGOs (All-Ukrainian Association of Administrative Services Centres, Centre for Political and Legal Reforms).
In order to procure necessary equipment, open tender was announced with publication in the English language (European procedure) for procurement of equipment for ASCs, since the value of expected procurement exceeds the threshold established in part one of Article 10 of the Law on Public Procurement. This procedure requires a period for submission of tender offers which is twice as longer compared with the regular procedure – 30 days instead of regular 15 days.
Taking into consideration a longer period of submission as well as time needed for re- qualification, auction, qualification, appeal and contract signing, and also the fact that the system of electronic tenders automatically sets timelines, and information received from suppliers about 90-day delivery with pre-payments, it appeared impossible to finish procurement of equipment by the end of 2019. Today, the possibility of making respective allocations in 2020 or in subsequent years is being considered, since provision of equipment for ASCs remains to be an important issue.
As per item 62 of the Implementation Plan, Monitoring was carried out of surveys conducted by independent think-tanks on user satisfaction with quality of administrative services. Thus, one polling of service users in 30 largest cities revealed that 90% of respondents gave positive evaluation of the work of ASCs21. It demonstrated high appreciation of such aspects as friendliness (96%) and level of competency (91%) of staff. Another survey revealed that 82% of immediate users were satisfied with services they received at ASCs, and just above 10% were not satisfied22.
The following measures were taken to provide financing for the user satisfaction study regarding quality of administrative services:
• The Cabinet of Ministers adopted Ordinance No. 486 of July 5, 2019 “On transfer of budget allocations stipulated for the General Affairs Department of Secretariat of the Cabinet of Ministers of Ukraine in 2019 to support implementation of comprehensive public administration reform to the Ministry of Economic Development and Trade”;
19 Ordinance of the Cabinet of Ministers of Ukraine No. 486 of July 5, 2019 “On transfer of budget allocations stipulated for the General Affairs Department of secretariat of the Cabinet of Ministers of Ukraine in 2019 to support implementation of comprehensive public administration reform to the Ministry of Economic Development and Trade”.
20 Resolution of the Cabinet of Ministers of Ukraine No. 866 of October 9, 2019 “On approval of Procedure for use of funding stipulated in the state budget for measures to provide administrative services centres with equipment for issuance of passports, driver’s license cards and vehicle registration cards”.
21 www.pravo.org.ua/ua/news/20873901-infografika.-otsinki-diyalnosti-tsentriv-nadannya-poslug-u-30-mistah-ukrayini
22 www.pravo.org.ua/ua/news/20873871-yakist-nadannya-administrativnih-poslug-v-ukrayini-dumka-gromadyan,-otsinka-fahivtsiv-ta-zmini- za-5-rokiv
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#PublicAdministrationReform • The Ministry of Finance opened a new budget programme 1201250 to finance activities related to provision of equipment for ASCs and channelled funds to the Ministry of Economy to conduct the study under the programme 1201010 “Governance and management in the area of economic development and trade”;
• The 2019 annual procurement plan of the Ministry of Economy was amended;
• Tender documentation was designed for procurement of corresponding services.
However, considering the fact that the responsibility for policy development and implementation in the area of administrative services were transferred to the Ministry of Digital Transformation at the end of 2019, the user survey planned by the PAR Strategy was not conducted.
The changes in the Indicative Operational Procedures for administrative services centres23 adopted in 2019 were intended, inter alia, to expand applicants’ possibilities to make comments and voice proposals regarding quality of administrative services. Thus, according to the introduced changes, a box, log or any other means to provide feedback should be made available at ASCs, local branch and remote workplace of administrator.
A series of training and awareness raising activities (workshops, seminars, conferences) were implemented on improvement of quality of administrative services and the work of ASCs, as stipulated by item 63 of the Implementation Plan. As part of this activity, SCMU, with support of the Project “Reform of Municipal Services in Eastern Ukraine II”, implemented by Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ) GmbH and commissioned by the German Government, conducted a conference on the topic “State of play and prospects of the reform of administrative services delivery. Decentralization of powers in the area of administrative services” on October 9-11, 2019, bringing together more than 200 representatives of local self-governments, executive bodies and NGOs.
As per items 64 and 65 of the Implementation Plan, the work continued on elaboration of draft laws to transfer powers of land registration, vehicle registration, driver’s license issuance and civil registration to local self-governments.
The Ministry of Internal Affairs prepared a draft law on amendments to some legislative acts of Ukraine with regard to implementation of legislation and determining the list of administrative services provided by territorial offices of the Ministry of Internal Affairs, stipulating a possibility to provide exchange of driver’s license at ASCs. However, due to the change of Government composition, the draft law has to be agreed again with all stakeholder institutions.
Meanwhile, although the draft law has not been approved, in practice, there is gradual implementation of some services related to state registration of vehicles and issuance (exchange) of driver’s license at ASCs. Service centres operating under the Ministry of Internal Affairs adopted 47 coordinated decisions with bodies that founded ASCs with regard to such services. Actual provision of such services is carried out at 18 ASCs.
Also, a practice has been introduced when territorial service centres under the Ministry of Internal Affairs and ASCs utilize shared premises to provide services. For example, in
23 Resolution of the Cabinet of Ministers of Ukraine No. 714 of August 14, 2019 “On amendments to Resolutions of the Cabinet of Ministers of Ukraine No. 118 of February 20, 2013 and No. 588 of August 1, 2013”.
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#PublicAdministrationReform Vinnytsia, Dnipro and Mariupol applicants can receive services of the Ministry of Internal Affairs at ASCs located in shopping centres. In Lviv and Ternopil, ASCs started to house territorial service centres of the Ministry of Internal Affairs that provide exchange of driver’s license, conviction record certificates, and consultations on all services delivered by service centres under the Ministry of Internal Affairs.
As per item 66 of the Implementation Plan, the work continued on simplification of most frequently claimed administrative services. The objective is partially implemented for 12 out of 15 services. For example, delivery procedures were optimized for two services – granting of housing subsidy and implementation of a comprehensive “e-baby” service during state registration of birth. Detailed information about simplification is presented in Annex 4.
As per item 67 of the Implementation Plan, as of December 28, 2019, 75 web-portals (websites) were connected to the integrated e-identification system (e-ID).
As per item 68 of the Implementation Plan, 102 services are accessible online. The Government continues to develop the Unified State Portal of Administrative Services with information available on:
• more than 1100 administrative services (legal acts that regulate service delivery, electronic application forms (in doc and pdf formats) and other documents necessary to request services, place and method of delivery, etc.);
• 43 CEBs, 504 state administrations and more than 780 ASCs, with addresses, working regime and links to websites (when available).
The Portal allows users to:
• create a personal account with login and password protected access, using electronic digital signature or BankID – identification of the National Bank of Ukraine;
• request and receive electronically 102 administrative services: 16 services of the Ministry of Economy; 72 services of the National Commission for State Regulation of Energy and Public Utilities, 4 services of the Ministry of Internal Affairs, 2 services of the State Committee on Television and Radio Broadcasting, 2 services of State Labour Service, and one service of State Geo-Cadastre, one service of the Ministry of Ecology, one service of the Ministry of Social Policy, one service of State Aviation Service, 3 services of the National Commission for State Regulation of Financial Services Market (including 2 combined services in 11 areas and 64 sub-areas);
• make appointment via electronic queue system to receive Ukrainian passport and travel passport (more than 10 services);
• submit reports required from businesses concerning district heating, district water supply and sewage to the National Commission for State Regulation of Energy and Public Utilities (40 reports);
• following links, receive 88 services in electronic form on other websites;
24 Resolution of the Cabinet of Ministers of Ukraine No. 1137 of 04.12.2019 “Issues of the Unified State Portal of Electronic Services and Unified State Portal of Administrative Services”.
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#PublicAdministrationReform • pay administrative fees using payment systems EasyPay, Portmone, iPay and WebMaster.
Apart from this, increasing number of services are being made accessible online on individual websites of public authorities. Examples include the electronic account of construction developer through which citizens can receive 9 services related to construction, and transport portal of e-services offers 2 online services related to obtaining of carriage permits and 6 services related to road carriage licensing. More services have been made available through the electronic account of driver, e.g. verification of driver’s license and vehicle registration; exchange / replacement of driver’s license; accessing information about administrative offense and payment of fines, etc.).
The Government also adopted a decision24 to create and implement the Unified State Portal of Electronic Services DIIA, according to the plan approved by the Ministry of Digital Transformation and depending on readiness in terms of hardware and software capabilities of the portal. Starting from January 1, 2020, DIIA Portal also functions as the Unified State Portal of Administrative Services.
The regulation on the Unified State Portal of Electronic Services approved by this Government decision establishes common requirements for electronic services, ensures everybody’s right to access electronic services and information about administrative and other public services, possibility to receive information from national registries necessary for service provisions, and introduces monitoring and evaluation of service quality.
Mobile application DIIA has been launched with access to 2 services: electronic driver’s license and electronic vehicle registration card.
Measures have been taken to develop a technical solution to create a system for conclusion of contracts with budget-funded institutions and signing of acceptance acts regarding goods, works and services in electronic form (item 69 of the Implementation Plan). This activity is in the process of implementation. ACHIEVEMENT OF INDICATORS
The PAR Strategy establishes 7 performance indicators to measure progress towards introduction of common rules of administrative procedure, interaction between government electronic systems, better performance of administrative services centres, simplification of administrative services and increased number of services available electronically. In 2019, 5 performance indicators were achieved.
Submission of the draft Law on Administrative Procedure to Verkhovna Rada and facilitation of its passing
This performance indicator has not been achieved, although its implementation is in progress. The draft Law on Administrative Procedure was submitted by the Government to Verkhovna Rada on February 28, 2018 and registered under number 9456. The Verkhovna Rada Committee on State Building, Regional Policy and Local Self-Government at its meeting on June 5, 2019 recommended to adopt the draft law in principle after its first
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#PublicAdministrationReform reading. However, it was recalled on August 29, 2019, because of appointment of a new Government.
On December 16, 2019, a round table was held at the Verkhovna Rada Committee on Organization of State Power, Local Self-Government, Regional and Urban Development to discuss the necessity to regulate administrative procedure through legislation, where attending participants expressed a consolidated position highlighting the importance of passing of the Law on Administrative Procedure by Verkhovna Rada.
On December 26, 2019, the Ministry of Justice held a meeting of the Working Groups tasked with drafting of the Law on Administrative Procedure chaired by the Minister of Justice and attended by representatives of SCMU, Ministry of Digital Transformation, SIGMA and EU4PAR experts, Business Ombudsman Council, all-Ukrainian associations of local self- governments and expert community. Members of the Working Groups and representatives of Ministry of Digital Transformation and Business Ombudsman Council provided some comments and suggestions to the draft law.
On February 28, 2020, the Ministry of Justice submitted the draft Law on Administrative Procedure to the Cabinet of Ministers for consideration, however it was returned to the developer due to appointment of new composition of Government, to be submitted again according to the established procedure.
Presently, the Ministry of Justice is making preparations to submit the draft law to the Government to be then introduced to Verkhovna Rada. Number of government registries registered in the National Registry of Government Electronic Information Resources
This performance indicator is considered to be achieved. According to the Ministry of Digital Transformation, 32 government registries held by central and local executive bodies were registered in the National Registry of Government Electronic Information Resources as of January 1, 2020, whereas the target was set at 25. Among them, 11 government registries are those included in the list of priority government information systems approved by CMU Resolution No. 606 of September 8, 2016.
Number of registered government IT systems connected to the system of electronic interaction
This performance indicator is considered to be achieved. As of January 1, 2020, 46 contracts were signed with government bodies to provide connection to the electronic interaction system TREMBITA. 14 government IT systems were connected to the operational environment of TREMBITA, whereas the target was set at 12.
Share of administrative services centres that provide mandatory administrative services
This performance indicator is considered to be achieved, since 89% of ASCs provide 50 and more services included in the list of mandatory services. The reference point is a list of 260 services that should be provided depending on functional capabilities of centres. The list
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#PublicAdministrationReform was prepared by the Ministry of Economy together with the All-Ukrainian Association of Administrative Services Centres, although it is not officially approved. Upon SCMU request, data on delivery of these services was provided by local self-governments and rayon state administrations through oblast administrations. Services available at ASCs, % most widely available least available
property registration 90
land registration 85
business registration 86
vehicle registration 10
replacement of driver’s license 7
civil registration 5
0 50 100
The data analysis shows that services decentralized to the local level are implemented at faster rate through ASCs, since local authorities want to see better service delivery. Visible examples include business and property registration and place of residence registration.
However, services related to civil registration, social services and some land-related services are not introduced at ASCs, even though they are widely claimed. The reason is that their delivery is organized through territorial offices of executive bodies or units of rayon state administrations.
Positive developments should be recognized in implementation of passport issuance and state registration (re-registration, de-registration) of vehicles and replacement of driver’s license. Implementation of these services requires purchase of special equipment and connection to secure communication channels. Passport services have been introduced at almost 200 ASCs, and services related to state registration (re-registration, de-registration) of vehicles and replacement of driver’s license have been introduced at 80 ASCs. Share of users satisfied with quality of administrative services provided through administrative services centres
This performance indicator has been achieved – user satisfaction rate is above 50%, whereas the target was set at 40%. This performance indicator was measured by the Centre for Political and Legal Reforms.
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#PublicAdministrationReform Number of simplified procedures for delivery of administrative services
Delivery procedures were optimized for two services – granting of housing subsidy and implementation of a comprehensive “e-baby” service during state registration of birth. The objective is partially implemented regarding simplification of 12 services. Detailed information about simplified services is presented in Annex 4. Thus, the indicator has been partially achieved since the target was to simplify 15 services.
Number of electronic services with high impact on citizens and business implemented at levels III-IV (according to EGDI UN Methodology)
According to information provided by the State E-Governance Agency and the Ministry of Economic Development and Trade, 102 services had been implemented at level IV by October 1, 2019. The target of 100 services is considered to be achieved. In September 2019, Ministry of Digital Transformation was created and tasked with policy development in the area of e-services.
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#PublicAdministrationReform 4. THE WAY FORWARD
Ukraine’s aspiration and commitment to European and Euro-Atlantic integration is enshrined in the Constitution, which emphasizes the importance of implementation of the European principles of public administration. At the same time, the country is facing severe challenges presented by the pandemic and economic shockwaves. The capacity to act efficiently in the face of crisis and achieve goals with minimum available resources are the new indicators exposing effectiveness of public administration reform.
The system of public administration in Ukraine is still prone to inertia. Procedures of establishment and reorganization of public bodies are unjustifiably lengthy and time- consuming. Selection and appointment of heads of public bodies (civil service positions) could take months due to lack of succession pool. Ministries are over-burdened with non- core functions related to service delivery, restraining their capability to produce strategic vision, rapidly respond to challenges and offer effective government solutions.
In 2020, it is planned to update the PAR Strategy and Implementation Plan drawing on achieved progress and challenges faced by the country. Achievement of objectives set by the updated PAR Strategy will largely depend on successful ministries’ reform and strengthening of policy-making function. Below is the vision of priorities in the updated PAR Strategy. STRATEGIC PLANNING, COORDINATION OF POLICY DEVELOPMENT AND IMPLEMENTATION
• Implementation of the updated Government’s Rules of Procedure through further methodological support to ministries, awareness raising and training of civil servants.
• Increasing capacity of the centre-of-government institutions (Secretariat of the Cabinet of Ministers, Ministry of Finance, Ministry of Justice) to ensure quality of adopted decisions.
• Elaboration of all necessary methodologies for implementation of the Government’s Rules of Procedure.
• Improvement of the strategic planning process.
CIVIL SERVICE AND HUMAN RESOURCE MANAGEMENT
• Development of legislation in the area of civil service, in particular drafting of necessary amendments to the Law on Civil Service in line with SIGMA principles.
• Elaboration and implementation of civil service job classification drawing on best practices.
• Implementation of transparent and fair remuneration system based on job classification.
• Deployment of HRMIS in executive bodies.
• Implementation of new approaches to professional development of civil servants.
• Building a single database for succession pool accessible to all central executive bodies.
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#PublicAdministrationReform • Transformation of organizational culture in civil service.
ACCOUNTABILITY – ORGANIZATION, TRANSPARENCY, OVERSIGHT
• Completion of ministries’ reform in line with requirements set forth in CMU Resolution No. 1034 of 11.12.2019.
• Conducting functional reviews of CEBs, decentralization and transfer of ministries’ non-core functions to other CEBs in order to strengthen ministries’ policy-making capacity.
• Introduce amendments to the Law on Central Executive Bodies and the Law on the Cabinet of Ministers of Ukraine (to improve organization of activity of Government and CEBs, including revision of a mechanism for CEB steering and coordination through ministers).
• Further implementation of the methodology for optimization of business processes and procedures in government bodies based on LEAN Government model.
• Centralization of some support functions.
• Optimization of function related to handling citizens’ petitions.
• Further development of electronic documentation flow and bringing CEB websites in compliance with common requirements. ADMINISTRATIVE PROCEDURES, ADMINISTRATIVE SERVICES AND E-GOVERNANCE
• Adoption and implementation of the Law on Administrative Procedure.
• Decentralization of powers to local self-governments (concerning civil registration; registration of vehicles and vessels; issuance of driver’s license; and boating license; issuance of seaman ID).
• Bringing services closer to people and improving their quality; transfer administrative services centres under rayon state administrations to local self-governments.
• Expand the offer of electronic services; improvement of the Unified State Portal of Electronic Services; development of DIIA Portal and mobile application.
• Increase the number of registries (IT systems) connected to TREMBITA, the system of electronic interaction of government information resources.
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#PublicAdministrationReform ANNEXES ANNEX 1. DELIVERY OF PAR STRATEGY IMPLEMENTATION PLAN IN 2019
ACTIVITY RESPONSIBLE RESULT DEADLINE IMPLEMENTATION ENTITY STATUS
STRATEGIC PLANNING, COORDINATION OF POLICY DEVELOPMENT AND IMPLEMENTATION
Improving procedure for preparation of documents in the areas of public policy and strategic planning 1. Define a system of MinEconomy Draft law approved by QI 2019 In progress national strategic planning MinFinance CMU and submitted The Ministry of Economy developed draft Laws “On National documents MinJustice to Verkhovna Rada Strategic Planning” and “On Amendments to the Budget Code SCMU of Ukraine” and submitted drafts to CMU by letter of 07.03.2018 No. 3033-01/9613-01. Due to change of Government, drafts were returned to the developer to be presented for Government’s consideration and further submission to Verkhovna Rada.
2. Develop and submit Minister of CMU CMU Resolution QIII 2019 Implemented to CMU a draft CMU SCMU adopted Cabinet of Ministers adopted Resolution No. 168 of February 26, 2020 resolution amending MinEconomy “On Amendments to the Government’s Rules of Procedure”; in line Government’s Rules of MinJustice with adopted changes, a full-fledged policy-making process is being Procedure to enhance introduced in Ukraine. strategic planning, policy development and coordination
3. Approve methodologies MinEconomy Methodologies QIII 2019 In progress on drafting national SCMU approved The Ministry of Economy continues its work on defining the system strategic planning of national strategic planning documents and related methodologies. documents (defined by the The Government’s Rules of Procedure approved on February 26, 2020 law) including provisions on planning on the level of CMU. The Budget Code adopted by Verkhovna Rada in the version of January 16, 2020 includes provisions on medium-term budgeting. Several more methodologies will be designed in 2020, including on drafting of legal acts.
4. Carry out information Minister of CMU Information materials QII 2019 – QII 2020 Implemented in reporting period campaign on adopted SCMU designed and SCMU conducted a series of workshops on new Rules of Procedure amendments to the circulated; training and preparation of forecast of impact for staff in SCMU and Government’s Rules of conducted ministries.
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Procedure to enhance strategic planning, policy development and coordination
5. Design or update Minister of CMU Methodologies QII 2020 In progress methodologies SCMU reviewed by PAR Methodology for stakeholder impact assessment and Methodology instrumental for MinEconomy Coordinating Council for stakeholder consultations have been designed and approved. The implementation of MinFinance Ministry of Finance also approved a methodology for assessment of adopted amendments to MinJustice budget impact (costing) of draft legal acts. the Government’s Rules of Procedure
6. Conduct training of civil NACS At least 500 civil QIV 2020 - servants in ministries servants trained on application of designed methodologies Online courses on QI 2021 -
instrumental for compliance with
implementation of requirements of
adopted amendments to the Government’s
the Government’s Rules Rules of Procedure,
of Procedure (incl. impact legal drafting and
assessment, drafting of impact assessment
policy documents, legal introduced and made
drafting, etc.) accessible for all civil servants
7. Prepare proposals for Ministries (according to Legal acts adopted QIII 2020 - amending legal acts in competency) order to align them with requirements of the Government’s Rules of Procedure
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#PublicAdministrationReform ACTIVITY RESPONSIBLE RESULT DEADLINE IMPLEMENTATION ENTITY STATUS
8. Enhance capacity of SCMU Report on needs QI 2021 - SCMU and ministries to Ministries assessment comply with requirements concerning of the Government’s Rules enhancement of of Procedure capacity to comply with requirements of the Government’s Rules of Procedure and implement action plans reviewed by PAR Coordinating Council
9. Create and implement MinDigital System implemented QIV 2020 In progress an information system to (E-Gov Agency) E-Gov Agency conducted joint work with representatives of CMU facilitate planning and SCMU and CEBs on testing of a sub-system to facilitate agreement of management of legal legal acts with a view of integrating it with the system of electronic drafting documentation flow. As of 01.10.2019, testing was completed; the sub-system will enable optimization of agreement process among CEBs and expedite processing of documents through all stages (drafting, agreement with stakeholders, legal review and submission to Government). According to contract No. НП/8-2019 of 30.08.2019, software development is envisaged to enable monitoring of agreement of legal acts in the CEB system.
10. Implement an electronic Minister of CMU Electronic system QIV 2019 Implemented system to monitor SCMU implemented The system for monitoring of achievement of PAR Strategy achievement of PAR E-Gov Agency performance indicators for 2019-2021 is implemented based on Share Strategy performance Point. indicators for 2019-2021
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Enhancing strategic coordination within e-governance development
11. Ensure concentration of MinDigital A state organization QIV 2019 Implemented competencies in the area (E-Gov Agency) (centre of The Ministry of Digital Transformation established the Unified State of e-governance competencies) is Portal of E-Services DIIA and state enterprise DIIA that operates established and its in the areas of creation, development, support, administration, functioning ensured ensuring functioning, facilitation, modernization, upgrading and technical support for electronic information resources (registries, automated information system, databases), development of e-governance, e-commerce and e-business, information society, digital skills, e-services, electronic trust services and services related to e-identification, support to provision of administrative services, technical and technological support to functions of central authentication body.
CIVIL SERVICE AND HUMAN RESOURCE MANAGEMENT
Automation of processes / HRM systems on the basis of modern ICT, enhancing effectiveness and transparency of civil service
12. Design modules for human NACS 3 modules designed QIV 2019 р. In progress resource management MinFinance and rolled out NACS launch piloting of the PoClick system (HRMIS). Piloting is information system in civil MinSocial already underway in three institutions – NACS, the Ministry of Digital service (HRMIS) SCMU Transformation and the Ministry of Finance. The system will improve data sharing between public authorities regarding HR planning and recruitment, employment structure, HR statistics, in-service training and development, performance management and reward.
13. Connect ministries and NACS HRMIS is used by QI 2021 In progress other CEBs to human other CEBs ministries and other The system is planned to be implemented and used by all ministries resource management SCMU CEBs by the end of 2020. information system in civil service (HRMIS)
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#PublicAdministrationReform ACTIVITY RESPONSIBLE RESULT DEADLINE IMPLEMENTATION ENTITY STATUS
14. Conduct training for HRM NACS Training conducted QIV 2019 – QIII Implemented in reporting period units and accounting units other CEBs 2021 Training was conducted for HRM units and accounting units in three of CEBs on application of pilot institutions – NACS, the Ministry of Digital Transformation and HRMIS the Ministry of Finance – on application of HRMIS.
Aligning civil service recruitment with European standards of good administration and best practices
15. Develop and submit to NACS Draft law approved by QII 2019 Implemented CMU according to the MinSocial CMU and submitted The Law of Ukraine No. 117-IX of September 19, 2019 amending established procedure MinEconomy to Verkhovna Rada some Laws of Ukraine to facilitate the ‘re-set of power’ was adopted. draft Law amending the MinFinance The law improved the procedure for admission to civil service by Law on Civil Service SCMU simplifying submission of information to participate in a competition concerning improvement (online application instead of submission of hard documents); opened of admission, employment up the possibility to conclude contracts for fix-term works and for and termination of civil limited number of staff; determined a mechanism for transfer of service and civil servants’ senior civil servants and possibility of delegation by heads of civil salaries, and amending service; optimized the structure of pay and stipulated that the appointment and dismissal Cabinet of Ministers shall define the procedure for forming the procedure for heads and payroll fund in public authorities (to apply common approaches to deputy heads of CEBs planning and distribution of relevant expenditures from the national budget).
16. Develop and submit to NACS CMU Resolution QII 2019 Implemented CMU a draft resolution MinEconomy adopted CMU Resolution No. 888 adopted on October 28, 2019 amending the on introduction of testing MinFinance Procedure for Competitive Recruitment in Civil Service. as a stage of competitive MinJustice recruitment to civil service positions in ministries and other CEBs at the centre for assessment and professional training established by NACS
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#PublicAdministrationReform ACTIVITY RESPONSIBLE RESULT DEADLINE IMPLEMENTATION ENTITY STATUS
17. Introduce testing as a NACS Testing introduced QIV 2019 Implemented stage of competitive other CEBs With the adoption of CMU Resolution No. 888 of October 28, 2019, recruitment to civil service testing has been introduced as a stage of competitive recruitment to positions in ministries civil service positions in ministries and other CEBs at the centre for and other CEBs at the assessment and professional training established by NACS. In 2019, centre for assessment about 22,000 candidates to civil service positions in categories A, B and professional training and C took tests at the Assessment Centre. established by NACS
18. Introduce posting of NACS Posting of QIII 2019 Implemented announcement about announcements Posting of announcements introduced according to CMU Resolution competitive recruitment introduced No. 888 of October 28, 2019 amending the Procedure for Competitive мto civil service positions Recruitment in Civil Service. on the unified vacancies portal career.gov.ua
19. Conduct training for NACS At least 200 civil QI 2019 – QIV Implemented in reporting period members of selection servants trained 2021 In 2019, 601 members of selection commissions received training on commissions on tools tools to assess professional competencies at National Academy of to assess professional Public Administration (NAPA), Kharkiv Regional Institutes of NAPA, competencies Kyiv, Ternopil and Kmelnytskyy centres of re-training and in-service training of employees of public authorities, local self-governments, state-owned enterprises, institutions and organizations.
20. Conduct RSP competitions MinAgro MinEnergy Competitions QIV 2019 Implemented to complete staffing of MinInfratsructure conducted; staffing As of March 1, 2020, directorates employed 726 reform staff in directorates, general MinCulture completed categories B and C: 35 DGs, 7 deputy DGs, 161 heads of expert groups, departments, Government MinHealth and 523 government experts. Office for European and MinEducation Together with RSPs in category A, namely state secretaries in Euro-Atlantic Integration MinRegion MinSocial ministries, leadership of the Office of the President of Ukraine, MinFinance Secretariat of the Cabinet of Ministers and NACS, in total 753 persons MinJustice were employed in reform staff positions as of March 1, 2020. NACS E-Gov Agency SCMU
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21. Improve provisions of RSP NACS RSP Concept amended QIV 2019 Implemented Concept approved by RSP Concept was amended by Resolution No. 1034 of December 11, CMU Ordinance No. 905 of 2019 “On some issues of public administration reform”. November 11, 2016
22. Carry out information NACS Annual reach-out QI 2019 – QIV Implemented in reporting period campaign on RSP to 100,000 persons 2021 Administrative support is provided to online resource for RSP recruitment through social candidates “New Civil Service – Key Insights in Simple Terms” on the networks web-platform “Community of Practice for Sustainable Development” (http://udl.despro.org.ua/), with more than 1,700 participants, that included provisions of answers through the hotline forum and publication of relevant updates for candidates. On May 16, 2019, NACS conducted the Open Doors event engaging all regional centres. Throughout the year, NACS together with SCMU and the Ministry of Justice represented civil service at three vacancy fairs.
Modernization of the system of professional development of civil servants
23. Design and approve NACS Methodology QIII 2019 Implemented a methodology for approved NACS issued Order No. 188-19 of October 15, 2019 on approval of assessment of needs in Methodology for professional training needs assessment for civil professional training of servants, heads, first deputy heads and deputy heads of local state civil servants based on administration, and local self-government officials, registered with professional competencies the Ministry of Justice on November 13, 2019 No. 1157/34128. assessment
24. Introduce professional NACS At least 75% of civil QII 2019 – QIV Implemented in reporting period training of civil servants servants trained 2021 54 senior civil servants or 28.3% (in category A) completed in-service in category A to develop training under the programme “Leadership and HRM Technologies” at leadership competencies the Ukrainian School of Governance in 2019.
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#PublicAdministrationReform ACTIVITY RESPONSIBLE RESULT DEADLINE IMPLEMENTATION ENTITY STATUS
Ensuring proper working conditions for civil servants, in particular by creating competitive, transparent and understandable salary system
25. Prepare proposals on civil MinSocial Proposals reviewed QII 2019 Implemented servants’ salary reform MinFinance by PAR Coordinating Draft concept of civil servants’ salary reform was presented at the MinEconomy Council meeting of PAR Coordinating Council on 20.06.2019. NACS The Ministry of Social Policy prepared the draft Law “On SCMU amendments to some laws of Ukraine to regulate civil servants’ salaries” and presented for consideration by PAR Coordinating Council.
26. Draft legal acts on civil MinSocial Draft legal acts QIII 2019 Implemented servants’ salary reform MinFinance designed and The scheme of base salaries in civil service by salary groups with MinEconomy submitted to CMU consideration of institutional jurisdiction in 2019 was approved by NACS CMU Resolution No. 102 of “On amendments to some Resolutions of SCMU the Cabinet of Ministers regulating salary structure of employees of public authorities, courts and institutions within the justice sector in 2019”
27. Carry out research and NACS Proposals reviewed QIV 2020 - prepare proposals on civil MinSocial by PAR Coordinating service job classification MinFinance Council and professional SCMU competency requirements
28. Provide access to NACS Access to aggregate QIII 2021 - aggregate data from SCMU data provided through HRMIS on civil servants’ website salaries by position categories through website
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29. Conduct civil servants’ NACS Survey conducted Annually, starting Implemented in reporting period survey on organizational SCMU from 2019 A study of civil service culture was conducted through survey of culture civil servants in local public authorities. The survey covered 14,674 civil servants. It was aimed at identifying characteristics of the organizational culture in civil service, revealing its strengths and weaknesses and discovering values common for all civil servants. The results of these activities will be included in the draft concept of civil servants’ culture.
30. Conduct professional NACS At least 50% of civil QI 2019 – QIV 2021 Implemented in reporting period training of civil servants other CEBs servants trained In the fourth quarter of 2019, training activities under the broad in category B under the programme “Human resource management in public administration” broad programme “Human were carried out at the Ukrainian School of Governance, National resource management in Academy of Public Administration (NAPA), Dnipropetrovsk, Odesa public administration”. and Kharkiv Regional Institutes of NAPA, 7 centres of re-training and in-service training of employees of public authorities, local self- governments, state-owned enterprises, institutions and organizations for 825 civil servants in category B, including 380 from central government bodies and 445 from local executive bodies, making up more than 50%.
31. Carry out regular training NACS At least 80% of civil QI 2019 – QIV 2021 Implemented in reporting period of heads and staff of HRM other CEBs servants trained In 2019, training activities were carried out at the Ukrainian School units in public authorities of Governance, National Academy of Public Administration (NAPA), to enhance knowledge and Dnipropetrovsk, Lviv, Odesa and Kharkiv Regional Institutes of NAPA, competencies in modern 7 centres of re-training and in-service training of employees of HRM approaches public authorities, local self-governments, state-owned enterprises, institutions and organizations for 867 heads and staff of HRM units were trained, including 476 in category B positions and 391 in category C positions.
32. Carry out training for civil CEBs At least 50% of civil QI 2019 – QIV 2021 Implemented in reporting period servants in HRM units in servants trained In 2019, training activities were carried out at the National Academy public authorities and of Public Administration (NAPA), Dnipropetrovsk and Kharkiv Regional civil servants in category Institutes of NAPA, Volyn, Khmelnytskyy and Kyiv centres of re-
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B under the broad training and in-service training of employees of public authorities, programme “Performance local self-governments, state-owned enterprises, institutions and appraisal of civil servants organizations for 472 civil servants in category B under the broad based on key performance programme “Performance appraisal of civil servants based on key indicators” performance indicators”.
33. Prepare a draft concept of NACS Draft concept QIV 2019 In progress civil service culture SCMU reviewed by PAR 4 workshops on civil service culture were conducted for HRM units Coordinating Council from local state administrations covering 24 oblasts, including strategic sessions “Corporate Foresight”. Outputs of strategic sessions were reviewed and presented at the meeting of HRM Council at NACS. Results from strategic sessions will be incorporated in the concept of civil service culture.
34. Prepare and submit NACS CMU Resolution QI 2019 Implemented to CMU a draft CMU SCMU adopted Resolution of the Cabinet of Ministers of Ukraine No. 106 of February Resolution on the system 6, 2020 “On approval of Regulation on the system of professional of professional training training of civil servants, heads, first deputy heads and deputy heads of local state administrations, local self-government officials and local council members” was adopted.
35. Prepare and submit NACS Proposals prepared QIV 2019 Implemented to CMU proposals on and submitted to Proposals on legislative amendments to expand the list of legislative amendments CMU professional training providers prepared and submitted to CMU (NACS to expand the list of letter of 10.01.2020 No. 143/08.01.-20). professional training providers
36. Prepare a list of priority NACS List and catalogue QI 2020 - topics and create a public on NACS professional training website catalogue for civil servants
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#PublicAdministrationReform ACTIVITY RESPONSIBLE RESULT DEADLINE IMPLEMENTATION ENTITY STATUS
ACCOUNTABILITY – ORGANIZATION, TRANSPARENCY, OVERSIGHT
Creating effective system of accountability and interaction of CEBs
37. Prepare and submit to Minister of CMU Draft law approved by QIII 2019 In progress CMU according to the MinJustice CMU and submitted Draft laws have been prepared; review by stakeholders is underway. established procedure a NACS to Verkhovna Rada Draft amendments were presented at the 17th meeting of PAR draft law amending the SCMU Coordinating Council on February 21, 2020. Laws on Central Executive Bodies and on the Cabinet of Ministers of Ukraine
38. Amend the Typical NACS CMU Resolution QI 2019 Implemented Procedure for civil SCMU adopted Resolution of the Cabinet of Ministers of Ukraine No. 591 of July 10, servants’ performance 2019 was adopted amending Resolution of the Cabinet of Ministers of appraisal approved by Ukraine No. 640 of August 23, 2017 and repealing Resolution of the CMU Resolution No. 640 Cabinet of Ministers of Ukraine No. 1047 of December 20, 2017. of August 23, 2017, on establishment of key performance indicators for heads of CEBs with consideration of institutional achievement of pre-defined outcomes in respective policy areas
39. Prepare proposals to MinEconomy Proposals reviewed QIII 2019 In progress improve the procedure of MinFinance by PAR Coordinating The Ministry of Economy continues work on elaboration of a system planning of CEBs work Council of national strategic documents and related methodologies that will incorporate improvement of the procedure of planning of CEBs work.
40. Implement the system of MinDigital (E-Gov System of electronic QIV 2019 Implemented electronic documentation Agency) documentation flow According to CMU Ordinance No. 455 of June 26, 2019, under the flow in CEBs and integrate other CEBs implemented in 5 National Informatization Programme the following allocations were
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it with the system of CEBs and integrated provided to CEBs: electronic interaction with the system of - For implementation of electronic documentation flow: to State between government electronic interaction Fishery Agency, State Ecological Inspection, State Inspection of bodies between government Energy Oversight, State Service for Drugs and Narcotics Control, bodies State Energy Efficiency Agency, Secretariat of Verkhovna Rada Commissioner on Human Rights; - For modernization of electronic documentation flow: to State Agency for Exclusion Zone, Ministry of Infrastructure, Ministry of Health, National Health Service, State Architecture and Construction Inspection, State Financial Monitoring Service. All these CEBs have been connected to the system of electronic interaction between government bodies.
Ensuring clear allocation of areas of responsibility, functions and tasks of ministries and other CEBs
41. Prepare and submit to Ministries Legal acts adopted by QI 2021 - CMU according to the CMU established procedure draft legal acts to free ministries from non- essential functions, such as delivery of administrative services, state property management, control and oversight
42. Prepare proposals on SCMU Proposals reviewed QIV 2020 - centralization of support MinFinance by PAR Coordinating functions of CEBs, MinJustice Council such as documentation MinEconomy management, accounting MinDigital (E-Gov
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and reporting, IT, logistics Agency) and general affairs, NACS government procurement Ukrainian Archives State Audit Service other CEBs (according to competency)
Improving structure of apparatus of CEBs to ensure effective performance of functions
43. Prepare and submit to NACS CMU Resolution QI 2020 Implemented CMU according to the Ministries adopted CMU Resolution No. 1034 of December 11, 2019 “On some issues established procedure a SCMU of public administration reform” was adopted to define common draft resolution defining requirements for the structure of ministry’s apparatus. requirements for the structure of ministry’s apparatus
44. Align regulations Ministries Regulations and QII 2020 - on ministries and structure amended organizational structure of their apparatus with the target model defined in the Concept of Optimization of Central Government approved by CMU Ordinance No. 1013 of December 27, 2017
45. Carry out functional CEBs (other than Reports reviewed by QIV 2020 - reviews of CEBs (other ministries) PAR Coordinating than ministries) SCMU Council
46. Align regulations on CEBs CEBs (other than Regulations and QII 2021 - (other than ministries) and ministries) structure amended
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organizational structure of their apparatus with the target model defined in the Concept of Optimization of Central Government approved by CMU Ordinance No. 1013 of December 27, 2017
47. Carry out functional Minister of CMU Report reviewed by QI 2020 - review of SCMU with SCMU PAR Coordinating regard of analytical, Council legal, organizational and technical support of the work of the cabinet of Ministers of Ukraine
48. Revisit functions and Minister of CMU Proposal on functions QIII 2020 - responsibilities of SCMU SCMU and responsibilities taking into account of SCMU reviewed practices of EU Member by PAR Coordinating State and OECD countries Council
49. Consider the expediency NACS Proposals reviewed QIII 2019 Implemented of introduction of a SCMU by PAR Coordinating Proposals were prepared for review at the meeting of PAR mechanism for delegation MinJustice Council Coordinating Council on 18.11.2019 (NACS letter No. 7284/07.02-19 of of powers of ministers 17.10.2019). and heads of other CEBs CMU Resolution No. 1041 was adopted on December 11, 2019 “On to heads of respective approval of delegation of some powers of head of civil service in structural units central executive body”.
50. Design and approve Minister of CMU Methodology QII 2019 Implemented methodology for SCMU approved by PAR Methodology for optimization and analysis of core business processes optimization and analysis CEBs Coordinating Council was approved by PAR Coordinating Council at the meeting of June of core business processes and published on 20, 2019. Training is being conducted for CEB staff.
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in CEBs (managerial CMU website; CEBs decision-making, report to SCMU about organization of handling results of analysis citizens’ petitions, etc.) of core business processes
Improving structure of apparatus of CEBs to ensure effective performance of functions
51. Define CEB responsible for MinInformation CMU Resolution QII 2019 In progress policy development and State Committee on TV adopted By decision of the Government Committee on Policy Development implementation in the area and Radio Broadcasting of 11.01.2020, the draft CMU Resolution “Some issues of policy of information access development and implementation in the area of public information access” submitted by the State Committee on TV and Radio Broadcasting (letter No. 4595/8/5 of 12.12.2019) was returned to the developer.
52. Prepare and submit MinDigital (E-Gov CMU Resolution QII 2019 Implemented to CMU common Agency) adopted CMU Resolution No. 493 was prepared and adopted on June 12, 2019 requirements for official “On amending some resolutions of the Cabinet of Ministers of Ukraine websites of CEBs concerning functioning of officials websites of central executive bodies”.
53. Adjust CEB websites to Ministries CEB websites comply QIII 2019 – QIII Implemented in reporting period comply with common other CEBs with common 2021 CMU Resolution No. 493 of June 12, 2019 “On amending some requirements SCMU requirements Resolutions of the Cabinet of Ministers of Ukraine concerning functioning of officials websites of central executive bodies” amended CMU Resolution No. 3 of January 4, 2002 “On Procedure for publication of information about activity of executive bodies in the Internet”. According to the updated CMU Resolution No. 3 of January 4, 2002, the Ministry of Digital Transformation is designated to be responsible for elaboration of recommendations regarding the design and modernization of official websites (portals) of executive bodies and official web-resources related to activity of executive bodies (design
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framework of government websites in Ukraine). In addition, Procedure for publication of information about activity of executive bodies in the Internet establishes updated requirements for the design (modernization) of official websites (portals) of executive bodies.
54. Study the processes and Specially authorized Proposals reviewed QII 2020 - prepare proposals on CEB on information by PAR Coordinating optimization and ensuring access Council of access to public MinDigital (E-Gov information in electronic Agency) form
ADMINISTRATIVE PROCEDURES, ADMINISTRATIVE SERVICES AND E-GOVERNANCE
Introduction of rules of general administrative procedure, providing basic safeguards for natural and legal persons
55. Submit to Verkhovna Rada MinJustice Support provided to throughout 2019 In progress and facilitate passing of passing of the Law The draft Law on Administrative Procedure was submitted by the Law on Administrative on Administrative the Government to Verkhovna Rada (registration number 9456). Procedure Procedure in However, it was recalled on August 29, 2019, because of appointment Verkhovna Rada of a new Government. On February 28, 2020, the Ministry of Justice submitted the draft Law on Administrative Procedure to the Cabinet of Ministers for consideration, however it was returned to the developer due to appointment of new composition of Government, to be submitted again according to the established procedure. Presently, the Ministry of Justice is making preparations to submit the draft law to the Government to be then introduced to Verkhovna Rada.
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56. Design a plan for MinJustice Plan approved by within one month - organization of drafting of other CEBs CMU after passing of legal acts instrumental for the Law implementation of the Law on Administrative Procedure
Ensuring effective interaction between administrative service providers
57. Register key government MinDigital (E-Gov 70 registries QIII 2021 In progress registries in the National Agency) registered The number of government registries registered in the National Registry of Government other CEBs Registry of Government Electronic Information Resources held by Electronic Information central and local executive bodies has reached 32. Resources
58. Connect government IT MinDigital (E-Gov IT systems connected QII 2019 – QIII 2021 Implemented in reporting period systems to the system of Agency) 14 government IT systems were connected to the operational electronic interaction MinAgro environment of TREMBITA system. By the end of 2019, automated MinInterior data sharing was secured between the following registries: - Civil status registry; - Unified information system of the Ministry of Internal Affairs; - Unified state automated registry of persons with benefit entitlement; - State registry of individual taxpayers; - State registry of mandatory state social insurance; - Unified state demographic registry; - E-Health – electronic medical information system. As of January 1, 2020, 46 contracts were signed to provide connection to the electronic interaction system TREMBITA.
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59. Establish requirements for MinEconomy MinEconomy provided QII 2019 Implemented administrative services SCMU recommendations CMU Resolution No. 714 of August 14, 2019 “On amendments centres and list of services on requirements to Resolutions of the Cabinet of Ministers of Ukraine No. 118 depending on the founder for administrative of February 20, 2013 and No. 588 of August 1, 2013” amended of administrative services services centres Indicative Regulation on administrative services centre and Indicative centres and list of services Operational Procedures for administrative services centres, e.g. to depending on ensure accessibility for people with disabilities and other low-mobility the founder of groups, and setting up space for leaving baby carriages. It also administrative established specificity of operations of local branches of such centres services centres and administrators working at remote workstations. The Ministry of Economy, in collaboration with the All-Ukrainian Association of Administrative Services Centres, prepared recommendations on requirements for administrative services centres and list of services that should be provided through administrative services centres depending on their functional capacity and discussed these recommendations with oblast state administrations. Elaborated recommendations on how to define requirements for administrative services centres and list of services to be provided through such centres have been provided to the Ministry of Digital Transformation and the Ministry of Regional Development.
60. Conduct analysis MinDigital Analytical report on quarterly basis Implemented in reporting period of compliance of SCMU reviewed by PAR The Ministry of Economy conducted analysis of compliance of administrative services Coordinating Council administrative services centres with established requirements centres with adopted regarding size of customer service area and list of services. As of recommendations January 1, 2020, there were 848 functional administrative services centres in the country. In the majority of centres (56%), the size of waiting areas and customer service area meets the established requirements: 21% of centres have area from 50 to 70 m2, 16% have the area from 70 to 100 m2, and 19% have the area above 100 m2. During recent years, the number of services provided through administrative services centres increases with continuously better quality. In 2019, 9% of centres provided more than 200 services, 27%
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provided from 135 to 200 services, 54% provided from 50 to 134 services, and 10% less than 50 services. Detailed information about administrative services centres is published on the website of the Ministry of Economy under the section “Activity” in sub-section “Administrative Services”.
61. Provide administrative MinEconomy Equipment purchased QIV 2019 Not implemented services centres with local state and installed in In order to provide financing for the Ministry to carry out necessary equipment for issuance administrations administrative procurement activities, the following documents were adopted: of passports, driver’s local self-governments services centres to - CMU Ordinance No. 486 of 05.07.2019 “On transfer of budget license cards and vehicle (by consent) ensure respective allocations stipulated for the General Affairs Department of registration cards. administrative SCMU in 2019 to support implementation of comprehensive public services administration reform to the Ministry of Economic Development and Trade”; - CMU Resolution No. 866 of 09.10.2019 “On approval of Procedure for use of funding stipulated in the state budget for measures to provide administrative services centres with equipment for issuance of passports, driver’s license cards and vehicle registration cards”. In order to procure necessary equipment, open tender was announced on 19.11.2019 with publication in English (European procedure) for procurement of equipment for administrative services centres, since the value of expected procurement exceeds the threshold established in part one of Article 10 of the Law on Public Procurement. This procedure requires a period for submission of tender offers which is twice as longer compared with the regular procedure – 30 days instead of regular 15 days. Taking into consideration a longer period of submission as well as time needed for re-qualification, auction, qualification, appeal and contract signing, and also the fact that the system of electronic tenders automatically sets timelines, and information received from suppliers about 90-day delivery with pre-payments, it appeared impossible to finish procurement of equipment by the end of 2019. Today, the possibility of making respective allocations in 2020 or in subsequent years is being considered.
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62. Carry out user satisfaction MinEconomy Analytical report QII 2019 – QI 2020 Not implemented in reporting period survey regarding quality local state reviewed by PAR Monitoring was carried out of surveys conducted by independent of administrative services administrations Coordinating Council think-tanks on user satisfaction with quality of administrative received through local self-governments services. Thus, one polling of service users in 30 largest cities revealed administrative services (by consent) that 90% of respondents gave positive evaluation of the work of centres administrative services centres. It demonstrated high appreciation of such aspects as friendliness (96%) and level of competency (91%) of staff (www.pravo.org.ua/ua/news/20873901-infografika.-otsinki- diyalnosti-tsentriv-nadannya-poslug-u-30-mistah-ukrayini ). Another survey revealed that 82% of immediate users were satisfied with services they received at administrative services centres, and just above 10% were not satisfied (www.pravo.org.ua/ua/ news/20873871-yakist-nadannya-administrativnih-poslug-v-ukrayini- dumka-gromadyan,-otsinka-fahivtsiv-ta-zmini-za-5-rokiv). Because the responsibility for policy development and implementation in the area of administrative services were transferred to the Ministry of Digital Transformation at the end of 2019, the user survey planned by the PAR Strategy was not conducted.
63. Carry out training MinDigital Training and QI 2019 – QIV 2021 Implemented in reporting period and awareness raising local state awareness raising As reported by oblast state administrations, development of activities (workshops, administrations activities carried out competencies of administrators working at administrative services seminars, conferences) on local self-governments centres, enhancement of communication skills and interaction of improvement of quality (by consent) service users is continuously monitored and supervised by local of administrative services administrations and local self-governments. With support of NGOs and the work of centres and international projects, local authorities organize seminars and providing such services workshops for staff of administrative services centres. For example, a conference was organized on the topic “State of play and prospects of the reform of administrative services delivery. Decentralization of powers in the area of administrative services” bringing together more than 200 representatives of local self- governments, executive bodies and NGOs.
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64. Develop and submit MinAgro Draft law approved by QIII 2019 Not implemented to the CMU a draft State Geo Cadastre CMU and submitted The Government did not receive for consideration a draft law on law transferring land to Verkhovna Rada transfer of land registration powers to local self-governments. registration powers to At the same time, a draft law is registered in Verkhovna Rada “On local self-governments amendments to the Land Code of Ukraine and other legislative acts on improvement of the management system and deregulation in the area of land relations” (registration number 2194 of 01.10.2019) that stipulates, inter alia, amendments to Section VII – Transitional and Final Provisions in the Law “On the State Land Cadastre”. According to the proposed amendments, the Cabinet of Ministers will be required to ensure implementation of a pilot project in 2020-2021 on entering information about land parcels to the State Land Cadastre by certified land management engineers, and on the basis of pilot outcomes prepare and submit to Verkhovna Rada a draft law granting certified land management engineers the status of state cadastre registrars. This draft law passed the first reading on November 11, 2019.
65. Develop and submit to MinInterior Draft law approved by QIII 2019 Not implemented the CMU a draft law CMU and submitted The Government did not receive for consideration a draft law on transferring powers of to Verkhovna Rada transfer of powers of vehicle registration and driver’s license issuance vehicle registration and to local self-governments. driver’s license issuance to However, the work is being carried out to implement some services local self-governments related to state registration of vehicles and issuance (exchange) of driver’s license at administrative services centres. In practice, there is gradual implementation of some services related to state registration of vehicles and issuance (exchange) of driver’s license at administrative services centres. Service centres operating under the Ministry of Internal Affairs adopted 47 coordinated decisions with bodies that founded administrative services centres with regard to such services. Actual provision of such services is carried out at 18 administrative services centres.
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66. Simplify procedures Ministries Services optimized QIII 2021 In progress for delivery of 15 most other CEBs according to The Ministry of Economy conducted a review of 15 most frequently frequently claimed proposals prepared by claimed administrative services and prepared an analytical report administrative services, in MinDigital with proposals on their optimization. particular related to birth Following these proposals, delivery of 12 out of 15 services has been of a child partially simplified, and delivery procedures were optimized for two services – granting of housing subsidy and implementation of a comprehensive “e-baby” service during state registration of birth. Detailed information about simplification is presented in Annex 4.
Ensuring that natural and legal persons have convenient access to administrative services in electronic form
67. Connect web-portals MinDigital (E-Gov Web-portals QIV 2019 Implemented (websites) of electronic Agency) connected As of 28.12.2019, 75 web-portals (websites) were connected to the services of government MinSocial to a common integrated e-identification system (e-ID). bodies to the integrated MinEducation e-identification e-identification system MinHealth system MinJustice MinEnergy MinInfrastructure MinCulture MinFinance MinAgro MinRegion
68. Implement electronic MinDigital (E-Gov Services implemented QIV 2021 In progress services Agency) as per indicators of The Government ensures regular functioning and development MinEconomy the PAR Strategy up of the Unified State Portal of Administrative Services enabling other CEBs to 2021 applicants to access information about administrative services through the Internet and receive services electronically. 102 services are accessible through the Portal. The Government adopted a decision to create and implement the Unified State Portal of Electronic Services DIIA, according to the plan
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approved by the Ministry of Digital Transformation and depending on readiness in terms of hardware and software capabilities of the portal (CMU Resolution No. 1137 of 04.12.2019 “Issues of the Unified State Portal of Electronic Services and Unified State Portal of Administrative Services”). Starting from January 1, 2020, DIIA Portal also functions as the Unified State Portal of Administrative Services.
69. Create a system for MinDigital (E-Gov System created QII 2019 – QIV In progress drafting and signing of Agency) 2021 Technical solution is being developed to create a system for electronic contracts in conclusion of contracts with budget-funded institutions and signing government bodies of acceptance acts regarding goods, works and services in electronic form.
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#PublicAdministrationReform ANNEX 2. ACHIEVEMENT OF PAR STRATEGY INDICATORS IN 2019
Performance indicator Baseline Target to be Actual value as of achieved by the 31.12.2019 end of 2019
Strategic planning, coordination of policy development and implementation Share of implemented actions 40% 45% 24% in the Government’s Annual (as of 31.08.2019)
Action Plan
Share of strategies adopted not defined not defined for measurement starts in in the current year that meet 2019 2020
the established requirements
Share of strategies with not defined not defined for measurement starts in annual reporting on 2019 2020 implementation
Civil service and human resource management
Share of central executive 0% 25% 0% bodies connected to Module Piloting rolled out in 1 of HRMIS 3 institutions – NACS, MinFinance and MinDigital
Share of competitions for civil 0% 20% 94% service positions in ministry’s
apparatus for which testing
is conducted centrally at
the Assessment Centre
established by NACS
Share of existing civil service 1% 50% 100% vacancies announced through
career.gov.ua
Share of civil servants in 0% 25% 28,3% category A who have been
employed in civil service for at
least one year and completed
at least one training course
under the leadership
programme for civil servants
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#PublicAdministrationReform Performance indicator Baseline Target to be Actual value as of achieved by the 31.12.2019 end of 2019
Share of fixed pay component 45% 50% 60% in the overall institutional
wage bill (base salary and
other mandatory payments)
Share of heads of HRM units 25% 53,6% who successfully completed
training on performance
appraisal methodology
Average number of 2 5 3 participants in civil service
competitions, persons
Accountability – organization, transparency, oversight
Share of central executive not defined 20% 27% bodies for which
corresponding Member of the
Cabinet of Ministers approved
performance indicators for the
upcoming year
Share of central executive not defined not defined for 42% bodies that have published 2019
annual reports on achieved
results
Share of ministries where not defined not defined for 80% the structure of apparatus 2019
is compliant with common
requirements
Share of ministries and other 0% 10% 0% central executive bodies with
websites meeting common
standards
Administrative procedures, administrative services and e-governance
Submission of the draft Law yes no
on Administrative Procedure
to Verkhovna Rada and
facilitation of its passing
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#PublicAdministrationReform Performance indicator Baseline Target to be Actual value as of achieved by the 31.12.2019 end of 2019
Number of government 5 25 32 registries registered in
the National Registry of
Government Electronic
Information Resources
Number of registered 0 12 14 government IT systems
connected to the system of
electronic interaction
Share of administrative 60% 70% from 200 to 260 services centres that provide services – 3 ASCs mandatory administrative (< 1%); services from 150 to 200 services – 493 ASCs (59 %);
from 100 to 150 services – 250 ASCs (26 %);
from 50 to 100 services
– 22 ASCs (3 %);
from 4 to 50 services
– 93 ASCs (11 %)
Share of users satisfied with not defined 40% 82% quality of administrative
services provided through
administrative services centres
Number of simplified 5 10 2/12 procedures for delivery of
administrative services
Number of electronic services 90 100 102 with high impact on citizens and business implemented at levels III-IV (according to EGDI UN Methodology)
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#PublicAdministrationReform ANNEX 3. PAR FINANCING
Planning and disbursement of expenditures under the budget programme “Support to implementation of a comprehensive public administration reform” is presented in the table below.
Year Planned Disbursed Not disbursed
2017 300,000.0 290,000 10,000
2018 422,622.3 422,622.3 0
2019 1,230,698.4 639,601.0 591,097.4
2020 1,060,740.5 (plan)
In 2019, funds were disbursed to the following activities.
As per item 20 of the PAR Implementation Plan, 539 million UAH25 were disbursed for staffing of directorates, general departments and Government Office for European and Euro-Atlantic Integration (for salaries with charges), of which 468.8 million or 87% were actually spent.
100.5 million were disbursed for other PAR activities, not related to salaries.
As per item 17 of the PAR Implementation Plan regarding introduction of testing as a stage of competitive recruitment to civil service positions in ministries and other CEBs at the centre for assessment and professional training established by NACS, 3.6 million UAH were disbursed for the following activities26:
Expenditure item Responsible institutions Million UAH
Introduction of testing as a stage of NACS 3,6 competitive recruitment to civil service positions in ministries and other CEBs at the centre for assessment and professional training
As per item 40 of the PAR Implementation Plan regarding implementation of the system of electronic documentation flow in CEBs and its integration with the system of electronic interaction between government bodies, 11 million UAH were disbursed for the following activities27:
25 According to Ordinances of the Cabinet of Ministers of Ukraine No. 1007 of December 18, 2018, No. 487 of July 5, 2019, No. 1281 of December 18, 2019.
26 According to Ordinances of the Cabinet of Ministers of Ukraine No. 667 of August 21, 2019.
27 According to Ordinances of the Cabinet of Ministers of Ukraine No. 416 of June 12, 2019.
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#PublicAdministrationReform Expenditure item Responsible institutions Million UAH
Implementation of electronic paper-free State Water Agency 2 documentation flow in State Water Agency
Implementation of electronic paper-free State Labour Service 2 documentation flow in State Labour Service
Implementation of electronic paper-free State Space Agency 2 documentation flow in State Space Agency
Modernization of the system of electronic State Service on 5 paper-free documentation flow in State Geodesy, Cartography Service on Geodesy, Cartography and Cadastre and Cadastre
As per item 53 of the PAR Implementation Plan on bringing CEB websites in compliance with common requirements, 3.5 million UAH were disbursed for the following activities28:
Expenditure item Responsible institutions Million UAH
Development of official website of the Ministry of Culture 0,7 Ministry of Culture using common design-code of government websites
Modernization of official website of the Ministry of Energy and 0,7 Ministry of Energy and Coal Industry using Coal Industry common design-code of government websites
Modernization of official website of the State Ministry of Agrarian 0,7 Forestry Agency using common design-code of Policy and Food, government websites State Forestry Agency
Modernization of official website of the State State Committee of 0,7 Committee of Television and Radio Television and Radio Broadcasting using common design-code of Broadcasting government websites
Modernization of official website of the State State Audit Service 0,7 Audit Service using common design-code of government websites
28 According to Ordinances of the Cabinet of Ministers of Ukraine No. 416 of June 12, 2019.
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#PublicAdministrationReform As per item 58 of the PAR Implementation Plan regarding connection of government IT systems to the system of electronic interaction, 2.5 million UAH were disbursed for the following activities29:
Expenditure item Responsible institutions Million UAH
Modernization of the State Land Cadastre to State Service on 2,5 enable implementation of electronic Geodesy, Cartography interaction and Cadastre
As per item 61 of the PAR Implementation Plan regarding provision of administrative services centres with equipment for issuance of passports, driver’s license cards and vehicle registration cards, 70 million UAH were disbursed for the following activities30:
Expenditure item Responsible institutions Million UAH
Activities for provision of administrative Ministry of Economic 70 services centres with equipment for issuance Development and Trade of passports, driver’s license cards and vehicle registration cards
As per item 61 of the PAR Implementation Plan regarding user satisfaction survey on quality of administrative services provided through administrative services centres, 10 million UAH were disbursed for the following activities31:
Expenditure item Responsible institutions Million UAH
Carrying out user satisfaction survey on Ministry of Economic 10 quality of administrative services provided Development and Trade through administrative services centres
Among listed activities, funds allocated for establishment of the Assessment Centre (NACS), provision of equipment for administrative services centres (MinEconomy) and user satisfaction survey on quality of administrative services provided through administrative services centres (MinEconomy) were not spent, in particular because of re-distribution of responsibilities among executive bodies in the second half of the year. However, the necessity to implement these activities remains and relevant bodies should consider planning for these activities in 2021 budget.
29 According to Ordinances of the Cabinet of Ministers of Ukraine No. 416 of June 12, 2019.
30 According to Ordinances of the Cabinet of Ministers of Ukraine No. 486 of July 5, 2019.
31 According to Ordinances of the Cabinet of Ministers of Ukraine No. 486 of July 5, 2019.
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#PublicAdministrationReform EU BUDGET SUPPORT
According to the Financing Agreement signed between the European Commission and Government of Ukraine in 2016 for the programme “Support to a Comprehensive Reform of Public Administration in Ukraine” (ENI/2016/039-569)32, the European Union provides budget support to Ukrainian Government. The amount of actually received budget support is presented in the table below.
Planned amounts Actual amounts
Year Fixed tranche, Variable tranche, Total, Actual disbursed amounts, million EUR million EUR million EUR million EUR
2017 10 - 10 10
2018 5 15 20 15,5
2019 5 15 20 12.1
2020 5 9 14 TBD in 2021
2021 5 21 26 TBD in 2022
Total 30 60 90 37.6
ANNEX 4. SIMPLIFICATION OF DELIVERY OF ADMINISTRATIVE SERVICES
Item 66 of the PAR Implementation Plan stipulates simplification of 15 most frequently claimed administrative Services, including those related to birth of a child. This activity is planned to be completed in the third quarter of 2021, but the work on simplification already commences in 2018.
In 2019, optimization of delivery procedures was achieved for 2 services:
1. Granting of housing subsidies. The Cabinet of Ministers adopted Resolution No. 329 of 27.04.2018 presenting the new version of Regulation on granting of housing subsidies, enacted earlier by Resolution No. 848 of 21.10.1995. According to the updated Regulation, persons can submit applications or statements to welfare offices by mail or electronically on the official web-portal of the Ministry of Social Policy or integrated IT systems of executive bodies and local self-governments.
2. Offering a comprehensive ‘e-baby’ service during state registration of birth that
32 Financing Agreement of December 19, 2016: https://zakon.rada.gov.ua/laws/show/984_002-16
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#PublicAdministrationReform incorporates state registration of birth and determination of child’s origin; place of residence registration; granting of child birth allowance; granting of child benefit for children in families with many children; entering data about a newborn child to the registries of patients maintained in the centralized e-Health system; registration in the state registries of individual taxpayers; issuance of ID card certifying parents and children in families with many children; determination of Ukrainian citizenship of a newborn child; entering data about a newborn child to the Unified State Demographic Registry with assignment of a unique entry code. The Cabinet of Ministers adopted Resolution No. 691 of 10.07.2019 on experimental project aimed to create beneficial conditions for realization of children’s rights, and Resolution No. 1166 of amending CMU Resolutions No. 207 of 02.03.2016 and No. 691 of 10.07.2019.
The objective of service delivery simplification is partially achieved for 12 services:
1. Issuance of certificate of family composition. The Cabinet of Ministers adopted Resolution No. 861 of 23.11.2016 amending the Rules governing records of citizens who need improvement of housing conditions and provision of accommodation for such persons in Ukrainian SSR approved by Resolution of the Council of Ministers of Ukrainian SSR and Ukrainian Council of Trade Unions No. 470 of 11.12.1984, with abolishment of requirement to submit this certificate. Also, the Ministry of Justice issued Order No. 3851/5 of 04.12.2017 (registered at the Ministry of Justice on 05.12.2017 under number 1469/31337) amending the Procedure for notary actions in Ukraine adopted by Order of the Ministry of Justice No. 296/5 of 22.02.2012 abolishing the certificate of family composition.
2. Administrative services related to pensions. The Cabinet of Ministers adopted Resolution No. 681 of 17.07.2019 on optimization of administrative services related to pensions. It stipulates implementation of electronic interaction between bodies of Ukrainian Pension Fund and other executive authorities that hold relevant information in their IT systems.
3. Administrative services in the area of state architecture and construction oversight. The Law No. 199-IX “On amendments to some legislative acts of Ukraine to improve delivery of administrative services in the area of construction and to establish a unified state electronic system in the area of construction”. This law amended the Law “On Regulation of Urban Development” to establish requirements for setting up and operation of a unified state electronic system in the area of construction as a single information and telecommunication system within the urban development cadastre.
4. Issuance of driver’s license. The Cabinet of Ministers adopted Resolution No. 320 of 03.04.2019 amending Regulation on issuance of driver’s license and permitting citizens to drive vehicles (CMU Resolution No. 340 of 08.05.1993), Procedure for training, re- training and enhancement of qualification of drivers (CMU Resolution No. 487 of 20.05.2009), Procedure for state attestation of institutions offering training, re-training and enhancement of qualification of drivers and attestation of their specialists (CMU Resolution No. 490 of 20.05.2009) stipulating simplification of accreditation procedure for training institutions and improvement of issuance and exchange of driver’s license.
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#PublicAdministrationReform 5. State registration of ownership title for immovable property. The Cabinet of Ministers adopted Resolution No. 509 of 12.07.2017 approving Procedure for state registrars dealing with ownership title for immovable property to access and use data from the State Land Cadastre and amending CMU Resolutions No. 1051 of 17.10.2012 and No. 1127 of 25.12.2015, introducing interaction between the State Registry of Property Title and State Land Cadastre in real time. The Cabinet of Ministers later adopted Resolution No. 925 of 06.12.2017 to improve the mechanism of safeguarding property title to land parcels, amending Procedure regulating state registration of ownership title for immovable property and encumbrances, approved by CMU Resolution No. 1127 of 25.12.2015, introducing interaction between the State Registry of Property Title and Unified Registry of documents permitting preparatory and construction works.
6. State registration (re-registration) of vehicles. The Cabinet of Ministers adopted Resolution No. 1092 of 06.12.2017 amending CMU Resolution No. 1388 of 07.09.1998 to establish that state registration (re-registration) of vehicles can be performed through administrative services centres on the basis of agreed decisions between territorial service centres of the Ministry of Internal Affairs and authorities that established administrative services centres. This helps bring these services closer to people who claim them by concentrating as many services as possible at administrative services centres operating as one-stop- shops.
7. Traffic clearance for vehicles with weight and dimensions exceeding maximum allowable norms. Measures are being taken to create an information and reference portal for transport operators in order to identify optimal routes for vehicles with weight and dimensions exceeding maximum allowable norms and to connect the module of transport operator electronic account to this information and reference portal and other IT systems.
8. Issuance of Ukrainian passport (as ID-card) Ukrainian travel passport (hereinafter – passports). Access to passport issuance is expanded by opening opportunity to submit documents through administrative services centres. The list of documents required to receive a passport has been optimized and delivery time limits have been reduced (20 and 10 days from the day of application instead of 30 and 10 days).
9. Issuance of taxpayer card and entering of taxpayer number to Ukrainian passport from the State Registry of Individual Taxpayers. The Ministry of Finance prepared the draft law “On amendments to the Tax Code of Ukraine (on combining procedures of individual’s registration in the Unified State Demographic Registry and in the State Registry of Individual Taxpayers)”. Currently, the draft law is undergoing repeated agreement with stakeholders because of change of Government composition. It stipulates, inter alia, that several administrative services could be requested by a single application, including registration in State Registry of Individual Taxpayers.
10. Place of residence / stay registration (cancellation of registration), also applicable for a newborn child. The Cabinet of Ministers adopted Resolution No. 207 of 02.03.2016 enacting the Rules for place of residence registration and Procedure for transmission of information to the Unified State Demographic Registry. It establishes the time limit
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#PublicAdministrationReform of 30 days (used to be 10 days) within which an individual is obliged to register his/ her residence (after cancellation of registration), and upon request this registration can be performed simultaneously with cancellation of previous registration. Also, place of residence registration for a newborn child can be performed simultaneously with claiming childbirth allowance at a welfare office on the basis of data stated by a legal representative of a child with whom a child permanently resides. The Cabinet of Ministers adopted Resolution No. 691 of 10.07.2019 provides a possibility for child’s parents to register the child’s place of residence simultaneously with birth registration. It also provides a possibility to perform place of residence registration for a child under 14 years of age by electronic submission of documents.
11. State registration of legal entities, citizens’ associations without legal personality and natural persons – entrepreneurs. On March 16, 2020, provisions came into force requiring that the Portal of electronic services of legal entities, natural persons – entrepreneurs and citizens’ associations should enable interaction with the application in the form of questions and answers (with the possibility to select Ukrainian or English language interface); electronic submission of documents for state registration; licensing of types of economic activity; issuance of permits; tracking the review status of submitted documents and applicant’s notification about document processing stage using selected method; generation according to the pre-defined algorithm of a digital code of model statute enabling automatic identification of a version of model statute on the basis of which a legal entity operates (when model statute has multiple versions).
12. A combination of services to receive title to a land parcel. Local self-government officials and administrators of administrative services centres have been granted powers to provide data from the State Land Cadastre. The Cabinet of Ministers’ Resolution No. 580 of 31.08.2016 introduced the principle of extraterritoriality for agreement of land management projects for allocation of land parcels. Thus, the system of electronic documentation of State Geo Cadastre shall randomly select a territorial body of State Geo Cadastre that would provide such agreement, after which the project shall be sent to the territorial body of State Geo Cadastre where the land parcel in question is located.
ANNEX 5. STUDY OF ORGANIZATIONAL CULTURE IN UKRAINIAN CIVIL SERVICE
A survey “The Civil Service Feedback Loop: Ukrainian local executive bodies and administrations” is continuation of the joint project “The Civil Service Feedback Loop” of Secretariat of the Cabinet of Ministers of Ukraine (SCMU), Professional Government Association (PGA), Centre on Democracy, Development and the Rule of Law at Stanford University (CDDRL), Kyiv School of Economics (KSE) and Reform Delivery Office of the Cabinet of Ministers of Ukraine (RDO). The survey was conducted by the National Agency of Ukraine on Civil Service (NACS) with support of the Norwegian Centre for Integrity in the Defence Sector (CIDS).
Purpose of the study: identify characteristics of the organizational culture in civil service, revealing its strengths and weaknesses and discovering values common for all civil servants.
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#PublicAdministrationReform • Geographic coverage: all regions of Ukraine
• Target group: civil servants in category B and C positions
• Method: anonymous online survey
• Recruitment: at place of work, invitation by NACS letter
• Total number of respondents: 14,674
Distribution of respondents by age and gender, %
18.9% 14.1%
20-29 years old 30-39 years old 23% 40-49 years old 50 years old 77% and older 36.7% 30.3%
Level of education, %
Education level Share of respondents, %
Bachelor’s degree or below 4.7 Specialist degree 59.5 Master’s degree 35.4 Candidate of sciences (or PhD) 0.5 Doctor of sciences 0.1
Position categories
Category Share of respondents, %
Category B 36.4 Category C 63.6
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#PublicAdministrationReform Length of employment in civil service:
Up to 6-10 11-15 16-20 21-30 31 years 5 years years years years years and above
23.6 19 21.5 16.9 17 2
0% 25% 50% 75% 100%
Average length – 12.75 years
Length of employment in current civil service position:
Up to 2-3 4-10 11-20 21 years 1 year years years years and above
24.2 25.7 31.9 15.1 3.1
0% 25% 50% 75% 100%
Average length – 5.8 years
ORGANIZATIONAL CULTURE IN PUBLIC AUTHORITY
The vast majority of respondents (62.4%) described the corporate culture of their institutions as such that promotes professional development and achievement of results. However, almost a quarter (23.3%) believe that the corporate culture of their institutions leads to frequent conflicts and hampers professional development and achievement of results.
Distribution of answers to the question “What would be your general assessment of the organizational (corporate) culture in your institution?”
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#PublicAdministrationReform Very beneficial Very toxic (promotes professional (leads to frequent conflicts and development and hampers professional development achievement of results) and achievement of results)
Completely Rather agree Neither agree Rather disagree Completely agree nor disagree disagree
34.3 28.1 15.3 11.2 11.1
62.4 22.3
Respondents attribute the highest degree of responsibility for building organizational culture to themselves (76.2%), head of an institution (73.6%) and HRM office (65.2%).
Distribution of answers to the question “Assess the degree of responsibility of listed entities for building organizational (corporate) culture in your institution”. (%)
Distribution of answers, %
Very high High Neither high Low Very low nor low
NACS? 9.4 43.4 35.4 7.5
Own personal 12.7 63.5 21.7 1.6 responsibility?
Line ministry / CEB / higher public 9.8 46.6 33.6 6.9 authority?
HRM unit? 12.1 53.1 25.8 6.7
Head of your public authority? 20.2 53.4 19.3 4.8
0% 25% 50% 75% 100%
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#PublicAdministrationReform VALUES
The majority of civil servants identified the following as key values that they uphold:
• responsibility (79.6%);
• honesty / integrity (69.1%);
• professionalism (55.9%).
Among civil servants employed in local executive bodies and administrations also identified the following common values: teamwork / cooperation (43.3%), respect of dignity, rights and freedoms of man (29%), serving the state / public interests (29%), effectiveness / efficiency (27.7%), political neutrality / impartiality (25.6%), friendliness (23.2%). (Respondents could choose up to 5 values.)
Most values upheld by civil servants employed in local executive bodies and administrations are oriented towards observance of formal rules and norms of behaviour – responsibility, teamwork, professionalism, effectiveness / efficiency, etc.
Considering the fact that only just above a third of respondents (27.9%) believe that the government protects their values rather well, and almost half could not answer this question, it can be assumed that the chosen values are most likely to be personal values of civil servants, and these values are not integrated with the institutional values. Looking at value orientation as a vehicle for norm setting and behaviour regulation, when elaborating norms of corporate culture, public institutions should take into consideration personal values of civil servants.
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#PublicAdministrationReform Key values upheld by civil servants, %:
Responsibility 79.6
Honesty / integrity 69.1
Professionalism 55.9
Teamwork / cooperation 43.3
Respect of dignity, human 29 rights and freedoms Serving the state / 29 public interest Effectiveness / efficiency 27.7
Political neutrality / impartiality 25.6
Friendliness 23.2
Diligence 16.4
Self-improvement / self-development 15.8
Openness / transparency 15.3
Initiative 15.1
Stability 10.2
Impartiality / 9.9 absence of bias Inclusion / 6 public engagement Innovation 5.2
Equality / non-discrimination 5.2
Creativity 3.8
Accountability 2.3
Other 0.3
0 10 20 30 40 50 60 70 80 90
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#PublicAdministrationReform This publication was produced with the financial support of the European Union. Its contents do not necessarily reflect the views of the European Union.
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