PUBLIC ADMINISTRATION REFORM
REPORT ON IMPLEMENTATION OF UKRAINE’S 2016-2020 STRATEGY FOR PUBLIC ADMINISTRATION REFORM IN 2018 1
TABLE OF CONTENTS
2 Foreword
3 Abbreviations
4 Introduction
12 Overall progress in PAR Strategy implementation
14 Reform area 1. PAR Strategic framework
25 Reform area 2. Strategic planning, policy development and coordination
32 Reform area 3. Civil service and human resource management
46 Reform Area 4. Accountability – organization, transparency, oversight
50 Reform Area 5. Administrative services delivery and administrative procedure
Annexes
64 Annex 1. Report on delivery of the PAR Strategy Implementation Plan in 2018
98 Annex 2. Achievement of PAR Strategy performance indicators
103 Annex 3. Data on RSP recruitment in 2018
104 Annex 4. In-service training of civil servants in 2018
Report Implementation of Ukraine’s 2016-2020 Strategy for Public Administration Reform in 2018 2
FOREWORD
Effective governance is a crucial pre-requisite for the successful competitive state working in the interests of citizens and securing their welfare and safety. With strong intention and commitment to reset and revamp the obsolete post-soviet administration and strengthen capacity of public institutions, the Government is implementing a comprehensive public administration reform in accordance with the European principles of good governance. The chief focus of the reform is on robust and sound decision-making by the government, building professional civil service, implementation of e-governance and delivery of accessible services to citizens.
The reform kick-started in 2016 with the adoption of the new Law on Civil Service and comprehensive Strategy for Public Administration Reform in line with the OECD/ SIGMA Principles of Public Administration. The years of 2017 and 2018 were marked by active phase of the reform involving reorganization of ministries, launch of new policy development and strategic planning directorates, civil service recruitment via transparent competitions on career.gov.ua platform, and roll-out of over 100 e-services for citizens and businesses.
In 2018, OECD/SIGMA experts performed a comprehensive assessment of public administration and produced recommendations that were taken as a base for the revised PAR Strategy.
Accountable and transparent public administration is an important pre-requisite of Ukraine's European integration, crucial for building a strong European democracy.
I would like to take the opportunity to express sincere gratitude to our European partners for the comprehensive support to this reform. I also would like to acknowledge colleagues, civil society experts and all who contributed to pushing forward one of the most vital reforms in Ukraine. There are still many tasks and objectives ahead requiring our consolidated efforts and commitment.
OLEKSANDR SAENKO
MINISTER OF THE CABINET OF MINISTERS OF UKRAINE
Report Implementation of Ukraine’s 2016-2020 Strategy for Public Administration Reform in 2018 3
ABBREVIATIONS
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
ICT Information communication technologies
LSG Local self-government
NACS National Agency of Ukraine on Civil Service
OECD Organization for Economic Cooperation and Development
PAR Public administration reform
RDO Reforms Delivery Office
RSP Reform staff positions
SCMU Secretariat of the Cabinet of Ministers of Ukraine
SIGMA Support for Improvement in Governance and Management Programme
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INTRODUCTION
WHY PUBLIC ADMINISTRATION REFORM REMAINS AMONG THE GOVERNMENT'S TOP PRIORITIES?
The year of 2018 was the third year of a challenging path towards building of transparent, open and accountable public administration that provides quality services to citizens. Public administration reform (PAR) continues to be one of the most vital structural reforms in Ukraine.
The ability to implement changes intended to secure competitiveness of the country, attraction of investment and creation of jobs depends on public administration's capacity to develop and implement effective policies while minimizing administrative burden. Modern, transparent and accountable public administration is key to building citizens' trust to the state. Good governance is also instrumental in fighting and eliminating corruption. Moreover, PAR is part of implementation of the EU-Ukraine Association Agreement.
The current PAR was launched in 2016 after enactment of the revamped Law on Civil Service. The PAR Strategy and its Implementation Plan are based on the European Principles of Public Administration defined by OECD/SIGMA1.
In 2018, Ukraine's public administration was assessed against these principles for the first time, and even though in many areas the situation in Ukraine was found to be comparable with the EU candidate states, the SIGMA baseline measurement identified deficiencies and challenges that need to be addressed
WHAT IS THE ULTIMATE GOAL OF PAR IN UKRAINE?
The Principles of Public Administration defined by OECD/SIGMA have been foundational for the PAR Strategy since its initial adoption in 2016. They not only service as technical beacons but guide towards concrete goals and objectives that need to be attained in order to modernize public administration in Ukraine bringing it in line with the European benchmarks.
The PAR Strategy has five reform areas with identified specific objectives, which, rather than being isolated, are closely inter-relate and enhance one another. For example, elaboration of robust strategies requires skilled civil servants, citizen- oriented services are impossible without sound business processes in the back- office. On the higher level, participation of various stakeholders in policy-making cannot take place in a system that is not transparent, open and accountable.
1 SIGMA stands for Support for Improvement in Governance and Management, and is a joint initiative of the European Union and the OECD that, inter alia, assesses quality of civil service, public governance and service delivery all over the world, thus playing a considerable role in decisions about EU financial assistance and investment.
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INTRODUCTION
In the area of policy development and coordination, the reform targets introduction of state-of-the-art procedures, tools and technologies for policy analysis and strategic planning as well as development of relevant capacity and corporate culture. The goal is to involve various society groups in policy planning and implementation, leading to inclusive development, social justice, saving of resources, European integration and other objectives identified and promoted at political level. The PAR Strategy rests on the belief that quality of policies and legal certainty have direct impact on quality of life and competitiveness of the economy.
In the area of service delivery, PAR focuses on tangible improvement of quality of services delivered to citizens and businesses. Annually, millions of users request and receive administrative services, and their experience as users to a large extent conditions their attitudes and confidence in the state. The main ambitions in this area are achievement of transparency and predictability of public administration procedures, open government data, reduced bureaucracy, and convenient and accessible services for citizens. Good quality and accessible services have the potential to improve the image of the state in the eyes of citizens, businesses and investors as well as significantly reduce corruption by eliminating respective loopholes.
In the area of civil service and human resource management, PAR seeks to ensure that public administration has highly-skilled workforce capable of supporting ministers in effective policy-making. Government is one of the country's major employers and as such should be able to attract the best talent committed to serving society. To this end, the government strives to become an attractive employer, using modern HRM tools, but first of all it requires development of service-oriented culture in public administration.
In order to build accountability, PAR involves creating organizational structures and internal business processes that would enable effective management and most efficient use of resources. This means that the government machinery will perform only those functions that cannot be performed better by the market, and on the right level of governance. Thus, ministries should focus on policy- making, delegating policy implementation and state property management to subordinated bodies or local self-governments.
Each institution should plan its work on the basis of societal expectations, be accountable for outcomes and possess sufficient operational discretion as to achievement of set goals and targets. This requires effective internal processes such as delegation of decision-making to the appropriate level, most cost- effective performance of functions, for example, by centralizing operations similar for a range of institutions.
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INTRODUCTION
It is important that implementation of this agenda has strong political leadership, effective communication, coordination and support to institutional capacity that make up institutional pre-conditions for implementation of the PAR Strategy.
WHAT CHALLENGES DID PAR FACE IN 2018?
Reform of public administration does not offer a quick-fix solution for all problems. European partners often say that it is not a "sprint" but a "marathon". This reform is multi-faceted and multi-dimensional, involving complex inter- relations with other reforms. PAR requires high-level communication, political discussion and trade-offs. From this angle, implementation of planned activities from the Implementation Plan on the level of 63% can be considered as good result. In order to maintain and further improve this rate, it is essential to resolve a number of challenges, both general and specific for each reform component. Below is the description of challenges that are common for all reform areas.
Firstly, it is essential to continue efforts towards building political consensus about the importance of PAR, its main goals and means to attain them. For example, in 2018 not all ministries were equally active in moving forward with the reform – strengthening of policy-making capacity via structural change was undertaken only by 8 ministries. Moreover, since the reform will affect the established procedures and ways to implement decisions in all ministries, political dialogue and wider consensus will become even more relevant. Similarly, the dialogue between the Cabinet of Ministers and the Verkhovna Rada needs to be stepped up because the reform requires adequate legal framework.
Secondly, one of the challenges for more expedient and effective reform implementation is fragmentation of Ukrainian public administration as burdensome legacy of the past. In comparison with the European model of public administration, in Ukraine the role of centre of government is not strong enough to facilitate implementation of complex reforms. Ukrainian public administration bodies and institutions have their own legal personality and oftentimes they do not share information and do not collaborate in the efficient manner. There is also lack of a common approach to employment and remuneration across public administration. These issues are addressed by PAR, including the revised Implementation Plan, but nonetheless they need continuous political support.
Thirdly, there is general institutional weakness coupled with inertia and convenience of following old approaches, causing natural resistance to certain reform efforts such as reorganization and functional streamlining. Additionally, it is necessary to overcome excessive bureaucracy and lack of proper delegation, among other things.
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INTRODUCTION
Fourthly, the pace of PAR is closely related to progress of other reforms. A good example is management of state-owned enterprises and their privatization. Currently, ministries deal with a large number of state-owned enterprises, which limits resources and concentration of ministerial leadership on policy-making by making them focus on day-to-day management of companies, which is just one example of inter-dependence between PAR and other reforms.
Fifthly, meaningful changes in public administration functions, e.g. interaction with citizens, are linked with improvement of legal framework. In 2018, the work commenced on initiating amendments to framework legislation governing public administration sector that brought first results – the draft Law on Administrative Procedure was registered in Parliament. Other legislative proposals such as changes to the Law on the Cabinet of Ministers of Ukraine, the Law on Central Executive Bodies and the Law on Civil Service are expected in 2019-2020.
WHAT ARE THE REFORM PRIORITIES IN 2019?
In 2019, the PAR agenda has a broad spectrum of objectives. At the same time, the revised PAR Strategy and Implementation Plan clearly define priority objectives for 2019, including the following:
1. AS REGARDS LEGAL FRAMEWORK, the Government will support passing of the Law on Administrative Procedure by Parliament. The legislative drafting plans also include proposals of changes to the Law on the Cabinet of Ministers of Ukraine, the Law on Central Executive Bodies and the Law on Civil Service as well as legislation on strategic planning. They should partially embed policy framework of macro- and micro-organization of government set forth in the Concept for optimization of central government system.
2. AS REGARDS POLICY DEVELOPMENT AND COORDINATION, the key priorities for 2019 is to introduce procedures and tools improving policy and legislative drafting, facilitate comprehensive revision of the Government's Rules of Procedure with consideration of ОЕСD/SIGMA recommendations and prepare policy-making methodologies. This will enable ministries, especially those that have established policy directorates, to provide better quality of policy-making and propose better government decisions.
3. AS REGARDS CIVIL SERVICE AND HRM, the initial results of earlier launched reforms are expected to come out in 2019. The NACS assessment centre for civil service candidates is becoming operational and will considerably ease the task of civil servants' recruitment. The new approach to the reform related to job classification and civil servants' salaries should be agreed upon and set in legislation (changes to the Law on Civil Service). The plan includes launch of HRMIS – an information
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INTRODUCTION
system for human resource management that would provide comprehensive and credible information about the civil service current status. It is also essential to develop the system of in-service training for civil servants by reforming the All- Ukrainian Training Centre and liberalization of workforce training market, which also requires legislative interventions.
4. AS REGARDS ACCOUNTABILITY, reorganization of ministries will be finalized in 2019, with further recruitment to reform staff positions.
5. AS REGARDS ADMINISTRATIVE SERVICES, the main focus will be on promotion of the Law on Administrative Procedure in the Parliament. Implementation of the system of interaction between public electronic registries and databases TREMBITA as well as the integrated e-identification system will also continue. Also, 50 services selected on the basis of their social weight and anti-corruption impact are to be digitalized and made accessible for Ukrainian citizens on the Government Portal kmu.gov.ua.
All of the above requires strong political and administrative leadership and effective stakeholder engagement, both internal and external. Therefore, one of strategic priorities for 2019 is to maintain effective internal and external communication.
WHAT ARE THE MEMORABLE MILESTONES OF THE THIRD YEAR OF PAR IMPLEMENTATION?
In 2016-2017, the foundation was laid for the comprehensive public administration reform in Ukraine, and ministries' reform was launched as pilot project in selected ministries and institutions.
In 2018, the Government continued efforts towards reforming the public administration, enhancing its institutional capacity, building new quality of civil service and developing e-governance. The foundation was laid for many processes that would yield visible results in longer-term perspective.
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INTRODUCTION
G In 2018, a comprehensive assessment of the state of play in Ukraine’s public administration was performed for the first time in 12 years.
This comprehensive assessment was conducted by SIGMA using the methodology designed and applied to EU candidate countries and potential candidates. This is by far the most comprehensive and objective assessment of all assessments conducted in Ukraine as of today. The scores received on 37 indicators are on the level and sometimes even higher that scores received by candidate countries. The results have confirmed progress achieved in public administration reform and will be further used as baselines in evaluation of its implementation.
G The revised PAR Strategy was adopted by the Government on 18 December 2018.
The revised PAR Strategy takes into consideration SIGMA conclusions and recommendations, contains performance indicators and estimated costs of implementation. PAR Strategy implementation is envisaged by 2021. In its revised version the PAR Strategy serves as a more efficient reform tool, incrementally bringing the Ukrainian public administration closer to the standards of the European Union.
G The EU gave positive evaluation of progress in the achievement of PAR indicators in 2017, subsequently disbursing the budget support tranche totalling 15.5 million EUR or 78% of the maximum possible amount.
The criteria for disbursement of the budget support instalment were related to progress achieved in creating a PAR coordination mechanism, introducing reform staff positions, developing an integrated human resource management information system (HRMIS) and adopting a policy framework for optimization of the executive system. Consistent implementation of the PAR Strategy and achievement of financial indicators ensured financial support to the reform.
G 10 pilot ministries, 2 agencies and Secretariat of the Cabinet of Ministers of Ukraine (SCMU) formed 58 directorates with 532 employees appointed to reform staff position as of 1 January 2019.
As of the end of 2018, over 31,000 applications had been submitted, including over 27,000 applications via career.gov.ua. This demonstrates high level of interest to vacancies, and on average the competition was 30 candidates per vacant position. The Government has become a more competitive employer attracting best talent to work in ministries.
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INTRODUCTION
G A process to ensure more professional competitive recruitment to civil service has been launched.
In 2018, a decision was taken to create an assessment centre for candidates seeking employment in civil service. The preparatory phase has already commenced, and with time the assessment centre will become a centralized professional recruiter, able to attract and recruit best professionals for civil service.
G A full civil servants' performance appraisal cycle was carried through for the first time.
Performance appraisal results for civil servants in category A positions were approved by the Cabinet of Ministers and published on the Government Portal. Introduction of performance indicators and systemic performance appraisal promotes transparency of civil service and helps refocus activity of public administration from processes onto results.
G The Government approved and submitted to the Verkhovna Rada the draft Law on Administrative Procedure.
The draft Law on Administrative Procedure establishes a general framework for citizen-state interaction in dealing with administrative issues. Adoption and implementation of this law will help significantly improve the quality of government services and strengthen orientation on citizens' needs.
G Development of a network of administrative services centres functioning as one-stop shops is underway, also in amalgamated communities, with a view to improving quality and accessibility of administrative services.
54 new one-stop shops were launched in 2018, alongside revitalization of the existing centres and expansion of their service menu.
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INTRODUCTION
G In 2018, the Government considerably increased the number of public services provided online.
As of the end of 2018, 118 electronic services have been implemented and made accessible on the revamped Government Portal kmu.gov.ua in the E-Services section. The number of citizens who used services regarding finance and tax issues was about 15 million; regarding transport – about 19 million; over 6 million applications were received regarding services related to land and environment, and 700,000 requests were made in relation to social welfare.
G Roll-out of the TREMBITA system has started.
Effective implementation of e-services is impossible without electronic interaction between registries held by various institutions. TREMBITA is a system intended to provide for such interaction. At the end of 2018, it received the expert conclusion of the State Special Communication Service on conformity with technical data protection requirements and was rolled out for testing.
G Ukraine ranks the second by rate of opening public data.
The Government is committed to opening most relevant for society data sets. Because of these efforts Ukraine was ranked the second among countries showing the greatest progress during recent four years in publishing and using open data, as per Open Data Barometer Report.
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OVERALL PROGRESS IN PAR STRATEGY IMPLEMENTATION CC 63% ACTIVITIES OF PAR STRATEGY PLANNED FOR 2018 HAVE BEEN IMPLEMENTED
One of quantitative indicators of PAR Strategy implementation is the number of completed activities and achieved objectives according to the Implementation Plan. In 2018, the implementation rate was 63% which an improvement against 55% in 2017. This result is worth consideration in light of a relatively new institutional architecture supporting the reform process and parallel comprehensive assessment of public administration and updating of PAR Strategy in 2018.
The PAR Strategy Implementation Plan for 2016-2020 (before revision) included 27 objectives and 105 activities required for their implementation. Among those, 79 activities have timeline by 31 December 2018.
As of the end of 2018, 50 out of 79 activities were fully implemented, which makes 63% of all activities planned for the year. Detailed analysis of the Implementation Plan delivery is presented in Annex 1. DELIVERY OF PAR STRATEGY IMPLEMENTATION PLAN as of 31 December 2018
100 79 80 71 59 60 46
40 32 47 50 38 35 20 25 0 DECEMBER MARCH JUNE JULY DECEMBER 2017 2018 2018 2018 2018
Number of planned activities Number of actually implemented activities
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OVERALL PROGRESS IN PAR STRATEGY IMPLEMENTATION
The PAR Strategy also envisages achievement of 27 performance indicators in 2018, among which 16 are fully achieved, and the rest are partially achieved. The analysis of achievement of planned performance indicators is shown in Annex 2.
ACHIEVEMENT OF PAR STRATEGY PERFORMANCE INDICATORS
Reform area 1. PAR strategic framework 5 / 6
Reform area 2. Strategic planning, policy 4/ 7 development and coordination
Reform area 3. / Civil service and HRM 2 5
Reform area 4. Accountability – organization, 0 / 1 transparency, oversight
Reform area 5. Service delivery and 5 / 8 administrative procedure
Implemented Planned
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REFORM AREA 1. PAR STRATEGIC FRAMEWORK
The objectives in this area for 2018 were to ensure an effective reform coordination and monitoring mechanism, conduct a comprehensive assessment of the public administration and use the findings and conclusions to revise and update the PAR Strategy, and to launch an outreach campaign on civil service reform.
CC ASSESSMENT OF PUBLIC ADMINISTRATION CONDUCTED BY SIGMA, AND THE PAR STRATEGY SUBSEQUENTLY REVISED AND UPDATED
In 2018, the Government initiated conduct of baseline measurement of the public administration system against SIGMA Principles serving as EU benchmarks of effective governance. Until then, no thorough analysis of the state of play regarding Ukraine's public administration had been performed. The measurement includes 9 key benchmarks on quality of public administration, 37 indicators and more than 200 sub-indicators.
For Ukraine, SIGMA used criteria applied to the EU Enlargement candidate countries and potential candidates. Thus, Ukraine was assessed against more rigorous standards than what is formally required.
On more than half of the applied indicators Ukraine scored 3 points or higher out of maximum possible 5 points, however some areas revealed deficiencies and lagging behind.
SIGMA baseline assessment offers Ukraine a systemic and measurable algorithm for the way forward with PAR. According to SIGMA recommendations, the key priorities in the upcoming period are:
• introduction of financial rationale for government decisions and draft legislation;
• securing of financing of PAR in the national budget of Ukraine;
• strengthening of government's capacity to develop and implement evidence- based and effective policy and legislation;
• introduction of a transparent job classification and salary system for civil service;
• improvement of accountability of central executive bodies and providing for efficient organization of ministries;
• providing for effective remedy in the area of information access for citizens;
• adoption and implementation of the Law on Administrative Procedure;
• improvement of services for citizens, including e-governance.
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REFORM AREA 1. PAR STRATEGIC FRAMEWORK
The SIGMA Ukraine Baseline Measurement Report 2018 is available on the Government Portal.
The assessment served as input when drafting of the revised PAR Strategy adopted by CMU Ordinance of 18 December 2018.
CC AUDIT OF SPENDING EFFECTIVENESS CARRIED OUT
In 2018, the Accounting Chamber conducted an audit looking into effectiveness of national budget spending on activities related to the comprehensive public administration reform. The Accounting Chamber's opinion was taken consideration, in particular when updating the PAR Strategy and related Implementation Plan, the Concept for optimization of central government system, strengthening reform coordination in ministries and revising the requirements to RSP candidates.
CC REFORM COORDINATION ENSURED
Since implementation of the PAR Strategy involves an extensive range of executive bodies, technical assistance projects and other partners, it demands efficient coordination mechanism.
The overall PAR coordination is carried out by the PAR Coordinating Council composed of representatives of the Government, Members of Parliament and civil society experts. The Council is led by Minister of the Cabinet of Ministers and convened five times in 2018.
The PAR Coordinating Council reviews submitted proposals and adopts decisions. Following recommendations of the PAR Coordinating Council, ministries prepare draft decisions of the Cabinet of Ministers and submit them for Cabinet's consideration, as necessary.
Monitoring and control of PAR Strategy implementation, organizational support to the work of the PAR Coordinating Council is carried out by the Directorate for Public Administration within SCMU.
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REFORM AREA 1. PAR STRATEGIC FRAMEWORK
FLOWCHART OF PAR STRATEGY MONITORING
DIRECTORATE PAR COORDINATING CMU MINISTRIES FOR PUBLIC COUNCIL ADMINISTRATION
Adoption Implementation Monitoring of implementation Review and taking of decisions of CMU decisions of PAR Strategy and proposals decisions on reform of PAR Coordinating Council implementation
MINISTRIES, NACS, E-GOV AGENCY
Drafting and submission of draft decisions to be considered by CMU
CC STRENGTHENED CAPACITY OF SCMU TO COORDINATE IMPLEMENTATION OF THE GOVERNMENT'S ACTION PLAN, PAR STRATEGY AND OTHER KEY REFORMS
PAR envisages coordination by a lead unit within SCMU with the overall responsibility for PAR as well as other government institutions responsible for individual reform areas.
CC TO ENSURE COORDINATION OF PAR IMPLEMENTATION, THE DIRECTORATE FOR PUBLIC ADMINISTRATION WAS ESTABLISHED WITHIN SCMU
and in 2018 received capacity to performed assigned tasks and responsibilities. In particular, it assumed tasks of the SCMU Public Administration Department. The major responsibilities of the new unit include review of draft acts, organizational support to the PAR Coordinating Council, monitoring and reporting on PAR implementation, interaction with international partners, etc.
In order to deliver these tasks, the Directorate has formed 7 expert groups with 21 appointed employees as of 31 December 2018.
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REFORM AREA 1. PAR STRATEGIC FRAMEWORK
ORGANIGRAM OF THE DIRECTORATE FOR PUBLIC ADMINISTRATION AS OF 31 DECEMBER 2018
DIRECTOR GENERAL AND DEPUTY DIRECTOR GENERAL
EXPERT GROUPS
Strategic Effectiveness HRM Optimization of Coordination of Corporate Communication Development of Executive Development Procedures Administrative Management of Public System and Business Services and Administration Processes in Administrative Executive System Procedures
An important role in PAR coordination is played by the Reforms Delivery Office (RDO), an advisory body to the Cabinet of Ministers2, created in 2016 to support organization and coordination of reforms.
CC PAR MONITORING METHODOLOGY AND TECHNOLOGY DEVELOPED ON THE BASIS OF SHARE POINT PLATFORM
Starting from 2018, the online system for monitoring of implementation of the PAR Implementation Plan became fully operational on the E-Governance Portal. All ministries, SCMU, NACS and E-Governance Agency are connected to this system operating on Share Point platform. Employees of involved institutions are able to report on status of PAR activities implementation electronically.
2 Reforms Deliver Office is an advisory body to the Cabinet of Ministers of Ukraine established in 2016. It includes 27 Ukrainian experts that support proper organization and coordination of reforms, in particular as regards planning of activities, monitoring and analysis of implementation. As a project, it is financed by the Ukraine Stabilization and Sustainable Growth Multi-Donor Account (MDA). Contributors to the Ukraine MDA are Denmark, the European Union, Finland, France, Germany, Italy, Japan, Netherlands, Poland, Sweden, Switzerland, the United Kingdom and the United States of America.
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REFORM AREA 1. PAR STRATEGIC FRAMEWORK
CC FINANCIAL SUSTAINABILITY OF PAR ENSURED
PAR activities have fully secured financing. In the Law on the State Budget of Ukraine 2018, financing under the budget programme “Support to implementation of the comprehensive public administration reform” increased versus 2017 and totals 1,630 million UAH (422.6 million UAH, taking into consideration changes to the budget introduced during the year).
Financing of the comprehensive public administration reform by years
YEAR PLANNED FINANCING, MILLION UAH
2017 300
2018 1,630 (422.6 after amendments)
2019 1 230,7
The main spending areas in 2018 were remuneration of the reform staff, activities related to implementation of e-governance and setting up of an assessment centre for civil service recruitment.
In 2018, 377,904.3 thousand UAH were allocated for consumption expenditures (salaries plus charges).
Other spending areas in 2018 included:
• Establishment and operational maintenance of the assessment centre – 17,318 thousand UAH;
• Modernization of the unified portal of the executive branch – 7 400 thousand UAH;
• Modernization and connection of the Unified State Registry of Legal Entities, Individual Entrepreneurs and NGOs, State Registry of Property Rights, State Civil Registry, Unified Registry for Power of Attorney, and State Registry of Real Estate Encumbrances to the system of interaction between public electronic registries and databases – 12,500 thousand UAH;
• Modernization and connection of the State Land Cadastre to the system of interaction between public electronic registries and databases – 2,500 thousand UAH;
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REFORM AREA 1. PAR STRATEGIC FRAMEWORK
• Modernization and connection of the State Registry of Individual Tax-Payers and Registry of VAT Payers to the system of interaction between public electronic registries and databases – 5,000 thousand UAH.
The State Budget of Ukraine 2019 allocates 1,230.7 million UAH for financing of the budget programme “Support to implementation of the comprehensive public administration reform”.
CC THE FIRST VARIABLE TRANCHE DISBURSED AS PER ACHIEVEMENT OF FINANCIAL INDICATORS
The European Union provides comprehensive support to the reform of public administration. Under the Financing Agreement between the EU and Ukraine, budget support is made available to Ukraine subject to achievement of PAR- related performance indicators.
INDICATIVE DISBURSEMENT TIMETABLE FOR EU BUDGET SUPPORT TO PAR (EUR million)
10 20 20 20 20
2017 2018 2019 2020 2021
10 20 20 20
II. III. 5 YEARS Effective HRMIS roll-out recruitment of reform staff 15,5 Received mln. EUR Planned IV. Extension of Not received I. comprehensive Consistent PAR PAR on all CEBs coordination (ministries, agencies, and implementation services, inspections)
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REFORM AREA 1. PAR STRATEGIC FRAMEWORK
In 2018, Ukraine received the first variable tranche totalling 15.5 million EUR for the achievement of 2017 indicators, which makes 78% of the maximum amount of disbursement. The first part of the instalment is fixed and totals 5 million EUR, whereas the second part, totalling 10.5 million, depends on successful implementation of the reform measured against the pre-defined indicators. This financing goes directly to the national budget.
Full achievement is granted to the indicators "consistent PAR coordination and implementation" and "effective recruitment of reform staff".
The indicator related to HRMIS development is partially achieved, and together with the indicator on completion of reorganization in ministries, the assessment was not the highest. In both these areas, measures have been taken to address existing gaps.
The EU Budget Support to be disbursed upon achievement of conditions set for 2018 will be assessed against the following indicators:
PERFORMANCE INDICATORS AS TARGET FINAN PER ANNEX I OF THE FINANCING CIAL AGREEMENT WEIGHT
1.2.1 An updated PAR Strategy adopted by Revised PAR Strategy 5% the Government; its implementation adopted by the plan with clear baselines, targets Government of Ukraine and indicators endorsed by the PAR Coordinating Council in line with the Revised PAR Strategy findings and recommendations of implementation plan the baseline assessment by OECD/ endorsed by the PAR SIGMA against the Principles of Public Coordinating Council. Administration
2.1.1 The revised Government's Rules of The revised Government's 5% Procedure enacted. Methodologies of Rules of Procedures strategic planning, policy-making and adopted; draft legislative drafting prepared in line methodologies prepared with principles set forth in the revised and approved by the PAR Government's Rules of Procedures. Coordinating Council; positive assessment of the Government's Rules of Procedures and
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REFORM AREA 1. PAR STRATEGIC FRAMEWORK
PERFORMANCE INDICATORS AS TARGET FINAN PER ANNEX I OF THE FINANCING CIAL AGREEMENT WEIGHT
methodologies against requirements listed in Annex I to financing agreement.
3.2.1 Number of civil servants identified At least 80% of reform 10% as "reform staff" in accordance staff positions foreseen with the Law of Ukraine “On Civil for 2018 filled; positive Service”, Government's decision on assessment of RSP introduction of the RSP Concept Concept implementation and other relevant government acts against corresponding defining implementation of the RSP qualitative requirement Concept (involved institutions, types of listed in Annex I to positions, job description, competencies financing agreement. framework, specific salary arrangement, selection procedures and recruitment, schedule specific modalities of performance appraisal, etc.).
3.3.1 Percentage of the reduction of total 5% 15% number of public administration Positive assessment employees (ministries, other central against corresponding executive bodies, territorial branches qualitative requirements and local state administrations) as a listed in Annex I to result of enhanced effectiveness and financing agreement. efficiency of public administration against targets established in PAR Strategy.
3.3.3 The roll-out of the integrated human Contract signed. 5% resources management information The roll-out launched in system (HRMIS) launched as per line with the agreed roll- contract signed with the selected out action plan for 2019. contractor and the agreed roll-out
action plan for 2019.
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REFORM AREA 1. PAR STRATEGIC FRAMEWORK
4.1.1 A comprehensive and realistic policy Policy framework and 10% framework for reorganisation of public corresponding action administration, including general plan are effectively principles, methodological guidance, implemented (positive coordination and implementation assessment against mechanisms, appropriate qualitative requirements implementation measures and timetable listed in Annex I to is adopted by the Government and financing agreement. implemented.
4.1.2 Policy development functions, as At least 80% of pilot 10% well as functions related to strategic ministries are fully planning and European integration reorganized in line with falling within the competency of the target model defined ministries are fully transferred to in the policy framework directorates. Support functions are for reorganisation of assigned to secretariats in ministries. public administration Positive assessment of progress against qualitative requirements listed in Annex I to financing agreement.
5.2.1 Number of e-services for citizens Level III: 40 20% and business at Level III and Level Level IV: 25 IV (according to the EGDI/UN Positive assessment methodology) that are available on the against corresponding Government Portal. qualitative requirement listed in Annex I to financing agreement.
5.3.1 Law on general administrative Law on general 20% procedures developed, positively administrative procedures assessed by OECD/SIGMA and adopted adopted by Parliament. by Parliament.
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REFORM AREA 1. PAR STRATEGIC FRAMEWORK
CC ENHANCED CAPACITY TO IMPLEMENT REFORMS
The EU provides expert support through the EU4PAR project that was launched in 2018 for four-year implementation period. The project is financed by the EU under the Financing Agreement and implemented by Corporate Public Management Consulting International OU (CPM International), FCG SIPU International AB (SIPU) (SE), Ecole Nationale Administration (ENA) (FR), Eurecna S.p.A. (EURECNA) (IT), Lech Kaczynski National School of Public Administration (KSAP) (PL), led by Corporate Public Management Consulting International OU (CPM International).
Another EU-funded project "Support to implementation of the RSP Concept" was implemented in 2018 by HGR Ukraine. Project experts participated in monitoring of the work of selection commissions focusing on fairness and quality of recruitment procedures. The project also delivered training to members of selection commissions, developed a toolkit to assess candidates against requirements for reform staff positions, produced a package of recommendations (concepts) to centralize part of the assessment process in the assessment centre and improve systems and approaches of competitive recruitment to civil service.
In 2018, there was also active collaboration with the EDGE Project – Expert Deployment for Governance and Economic Growth, implemented by Agriteam Canada Consulting and financed by Global Affairs Canada. In particular, project experts provided support in practical application of result-based management for revision and updating of the PAR Strategy.
Association4U, the EU-funded technical assistance project, provided support to organization of training for the reform staff.
CC REGULAR STRATEGIC DIALOGUE WITH THE EU ENSURED
Within the framework of the Financing Agreement, regular meetings take place to discuss the state of play in the form of Strategic Dialogue. There were two such meetings in 2018, during which the progress of the reform, successes and challenges were discussed with the EU side. The result is common understanding of the state of play and comprehensive support to the reform.
CC A COMPREHENSIVE OUTREACH CAMPAIGN TO SUPPORT PAR TARGETED OVER 3.5 MILLION CITIZENS
In the autumn of 2018, a large-scale communication campaign was launched. It was developed jointly by NACS, Ministry of Information Policy and SCMU Directorate for Public Administration. It focused on attracting and recruiting candidates to fill in reform staff positions and on promoting career.gov.ua website together with possibilities for electronic submission of documents
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REFORM AREA 1. PAR STRATEGIC FRAMEWORK
to participate in competitions. It is also an effort to improve the image of the state as an employer and explain advantages and specificity of work in public administration. The campaign is being carried out in phases, and includes social networks, public service advertising on TV, outdoor advertising, radio and print promotional materials about the reform and the civil service.
Since 2017, support to planning and implementation of communications was provided by the EU-funded project “Support to Strategic Communication and Raising Awareness of Public Administration Reform in Ukraine” implemented by NGO Internews Ukraine. The project experts elaborated the draft for PAR Communication Strategy that was subsequently approved by the PAR Coordinating Council on 8 October 2018. The project also contributed to development of a comprehensive branding of the reform, facilitated a range of communication activities (participation in job fairs, printing of promotional materials, production of video clips, etc.) and modernization of career.gov.ua website, etc.
CHALLENGES ENCOUNTERED DURING IMPLEMENTATION OF THIS REFORM AREA IN 2018
The biggest challenge in this area remains to be communication of the reform. Independent surveys, in particular the survey conducted as collaborative effort between SCMU and CDDRL, Centre on Democracy, Development and the Rule of Law at Stanford University, Kyiv School of Economics and the Professional Government Association at the end of 2018, reveal deficiencies in communication and insufficient understanding of goals and objectives of PAR among civil servants. There are also delays in implementation of PAR communication support activities from the Implementation Plan, i.e. incomplete delivery of activities related to implementation and monitoring of the PAR communication support plan.
It is partially explained by prolonged elaboration of PAR communication strategy that was approved by the PAR Coordinating Council only in October 2018. It is a complex document, and its implementation mechanism is still to be developed.
To accelerate delivery of communication related tasks, starting from the end of 2018 the communication support function is assumed by the EU4PAR project to tackle it in a more thorough and comprehensive way, through constructive dialogue between the project, beneficiary and other stakeholders.
Report Implementation of Ukraine’s 2016-2020 Strategy for Public Administration Reform in 2018 25
REFORM AREA 2. STRATEGIC PLANNING, POLICY DEVELOPMENT AND COORDINATION Quality government decisions constitute a crucial factor for the country’s development in areas of responsibility assigned to the Government as well as for the citizens' trust to the state. Therefore, introduction and implementation of procedures for quality policy-making as central task of ministries are among the key PAR areas.
Long-term Government priorities are defined in the Programme of Activity of the Cabinet of Ministers of Ukraine serving as framework document further detailed in:
• strategies – for long-term planning;
• concepts – for short-term planning of individual actions or setting direction in a narrower area;
• programme – for implementation of projects financed from the national budget.
In their turn, these documents underpin budget planning. However, absence of clearly defined approaches and requirements for elaboration, implementation and monitoring of strategic planning documents in the Government has resulted in production of a large quantity of documents not supported by financial resources that lack mutual coherence. Revision of policy planning approaches was carried out as part of PAR seeking to ensure evidence-based and coordinated decision-making focused on achievement of strategic priorities and based on public interest.
The objective in this area in 2018 was to improve the quality of government decisions by enhancing capacity of SCMU as regards strategic planning, improvement of the decision drafting process, and further development of electronic interaction between institutions within the executive branch.
SIGMA experts assessed the state of play in the area of policy planning and coordination. In their opinion, the legal framework for policy development and co-ordination is in place, and the critical functions for an effective policy-making system, including coordination of the European integration process, have been assigned to institutions in the centre of government.
The hierarchy of government planning documents is defined on the level of legislation, and its adequacy was assessed by the European experts as 4 out of 7 points; the same score was assigned to the legal act establishing the procedure for government meetings. The legislative framework that enables harmonized planning of European integration received 2 out of 2 points; and adequacy of the legislative framework for monitoring and reporting received 7 out of 8 points.
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REFORM AREA 2. STRATEGIC PLANNING, POLICY DEVELOPMENT AND COORDINATION
CC ENHANCED CAPACITY OF THE CABINET OF MINISTERS FOR STRATEGIC PLANNING OF PUBLIC POLICY
The strategic planning function of the Cabinet of Ministers is carried out through preparation of the Programme of Activity of the Government that defines priority goals and objectives the Cabinet of Ministers shall focus on.
The Cabinet of Ministers' capacity for strategic planning of public policy is being strengthened with consideration of the need to:
• achieve strategic goals defined in the Programme of Activity and other strategic and programmatic documents;
• tackle problems of public significance;
• implementation of Ukraine's international commitments.
Implementation of the Programme of Activity of the Government is supported by the Medium-Term Priority Action Plan of designed and approved in 2017 that defines Government objectives and reform agenda up to 2020. The ultimate goal of the Medium-Term Plan is to ensure growing standards of living and quality of life through sustainable economic development. The Medium-Term Plan has become a foundational strategic document underpinning other strategic and programmatic documents regulating key government reforms.
CC GOVERNMENT'S PRIORITY ACTION PLAN FOR 2019 HARMONIZED WITH THE BUDGET PROCESS
Cross-cutting operationalization of the Medium-Term Priority Action Plan is ensured by approval of Annual Priority Action Plans of the Government. In 2018, the process of drafting of 2019 Priority Action Plan was harmonized with the budget process that enabled to ensure coherence of strategic and budget planning.
In the drafting process, the emphasis was on the need to:
• ensure acceleration of priority reforms in line with the Programme of Activity of the Government;
• analyse the state of play in respective policy areas;
• take into consideration the progress in achievement of priorities from the Medium-Term Priority Action Plan 2020 and ensure achievement of defined performance indicators;
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REFORM AREA 2. STRATEGIC PLANNING, POLICY DEVELOPMENT AND COORDINATION
• take into consideration provisions of the EU-Ukraine Association Agreement and the 2030 Sustainable Development Goals.
• take into consideration the needs and plans in terms of international technical and financial assistance.
Operationalization of the Medium-Term Priority Action Plan enabled its monitoring. Systemic monitoring of implementation is carried out via the E-Governance Portal. This portal has been designed to enable vertical and horizontal communication within the executive branch and automation of data collection, processing and analysis, to support managerial decision-making by the country's top leadership. It was also intended as a single space for posting, search and joint work on drafts, establishment, planning, control and operational monitoring of task delivery progress.
Strategic planning of Government's work is ensured by the Directorate for Policy Coordination and Strategic Planning in SCMU. Its tasks are to improve the system of strategic planning and policy-making, organization and methodology for drafting of documents, ensuring coordination of policy development and implementation in accordance with the Government's Programme of Activity and strategic documents, coordination of international assistance, provision of analytical support to government decisions, and production of plans and reports on implementation of Government priority actions.
CC IMPROVED STRATEGIC PLANNING SYSTEM
Seeking to improve the system of strategic planning of the Cabinet of Ministers' activity, in 2017-2018 efforts were taken with regard to amending the Law on the Cabinet of Ministers of Ukraine, in particular defining the Government's mandate in the area of strategic planning and policy coordination.
In parallel, regulation of strategic planning and improvement of quality of government decisions was undertaken by preparing methodological guidelines on strategic planning. For example, draft methodological guidelines were prepared with respect to elaboration of strategic, programmatic, conceptual and other policy documents, presented at the 11th meeting of the PAR Coordinating Council.
Methodological guidelines were also prepared for stakeholder consultations, reflecting best practices of stakeholder engagement for quality decision-making with regard to public policies in the EU countries.
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REFORM AREA 2. STRATEGIC PLANNING, POLICY DEVELOPMENT AND COORDINATION
CC GOVERNMENT'S STRATEGIC COMMITTEE ESTABLISHED
The Strategic Committee was established to review and consider conceptual, strategic and programmatic documents of the Cabinet of Ministers, draft ordinances approving Annual Priority Action Plans and respective implementation reports.
The Strategic Committee has become a forum for thorough, focused discussion of strategic priorities and long-term goals of the Cabinet of Ministers and settling political divergencies in positions held by various executive bodies. This interaction format allows Cabinet Members to focus on strategically important issues tackling of which requires policy coordination across sectors on the highest level.
CC FORECAST OF IMPACT INTRODUCED FOR DRAFT GOVERNMENT DECISIONS
CMU Resolution of 18 April 2018 No. 326 amending the Government's Rules of procedure introduced changes stipulating that:
• policy development and implementation should be based on examination of state of affairs in respective areas and sectors, analysis-driven problem definition, and suggestion of optimal ways to address identified problems;
• forecast of impact of an act on key interests of stakeholders (forecast of impact) should be prepared as annex to the explanatory note for the act.
Forecast of impact is a document that describes stakeholders and their potential benefits and losses from a decision which is being considered by the Government. Preparation of this document should facilitate the work with stakeholders and increase awareness of decision-makers about potential consequences of decisions.
To provide methodological guidance for legal drafters concerning forecast of impact, SCMU together with the Ministry of Justice and BRDO prepared Guidelines for conducting forecast of impact on key interests of stakeholders; conducted capacity building activities for 427 public administration employees on how to produce forecast of impact; conducted capacity building activities for 262 employees of SCMU on forecast of impact review and preparation of alternative forecast of impact.
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REFORM AREA 2. STRATEGIC PLANNING, POLICY DEVELOPMENT AND COORDINATION
CC INTRODUCTION OF DIGITAL BY DEFAULT
Adaptation of the Ukrainian legislation to digitalization processes plays an important role in stepping up of e-governance implementation. Currently, only a small share of legal acts contains the norm by which the process described in a document can be realized digitally.
Therefore, CMU Resolution on digital development was drafted in 2018 and then adopted early in 2019, introducing the digital by default principle. Thus, in all government acts the digital process or procedure shall be the preferred option of realization, and digital review shall be performed to ensure this.
The adopted Resolution launches a gradual quality transformation of the entire legal framework.
CC THOROUGH REVISION OF THE GOVERNMENT'S RULES OF PROCEDURE STARTED
Drawing on conclusions and recommendations of OECD/SIGMA SCMU together with other stakeholders and with EU support initiated a comprehensive revision and updating of the Government's Rules of Procedure. The aim is to regulate and improve quality of government decisions by streamlining the decision-making procedures. This includes:
• improving the procedure for planning of Government’s activity;
• establishing clear typology of government documents;
• optimizing the requirements for supporting documents attached to draft acts, in particular improve the explanatory note and introduce unified forecast of outcomes of implementation of government decisions;
• providing for comprehensive stakeholder consultations in the course of legal drafting;
• defining clear roles of various institutions in the course of drafting decisions, especially for the centre-of-government institutions (SCMU, Ministry of Justice, Ministry of Economy, Ministry of Finance).
The draft of the revised Rules of Procedures is planned to be finalized by mid- 2019.
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REFORM AREA 2. STRATEGIC PLANNING, POLICY DEVELOPMENT AND COORDINATION
CC INTRODUCTION OF ELECTRONIC DOCUMENTATION FLOW CONTINUED
In 2018, 193 institutions and bodies were connected to the system of electronic interaction within the executive branch. Thus, electronic inter-agency interaction is currently implemented in 673 institutions.
Within this electronic interaction system, about 5,400 e-documents are shared on a daily basis.
The system of electronic interaction within the executive branch connects all city councils of cities of regional significance, 336 district state administrations, 8 cities of regional significance and 12 local communities.
The system that would support electronic reconciliation of draft legal acts has been developed and is currently being tested. It also foresees the functionality for tracking acts and producing analytical data for SCMU.
Alongside these transformations, European standards are being introduced in electronic document sharing. In 2018, the E-Governance Agency issued the order regulating new electronic document format compatible with the European format. This will enable government institutions to launch transition to the European standard ETSI EN 319 162 ASiC (Associated Signature Containers) Baseline Profile. Thus, electronic document in the new format can contain the text itself and digital signatures of all institutions involved in drafting.
ELECTRONIC DOCUMENTATION FLOW: 2018 193 institutions and bodies were connected to the system of electronic interaction within the executive branch in 2018.
GOVERNMENT BODIES, INSTITUTIONS, about ORGANIZATIONS are currently connected to the electronic interaction 5400 system. e-documents are shared on a daily basis within this system Report Implementation of Ukraine’s 2016-2020 Strategy for Public Administration Reform in 2018 31
REFORM AREA 2. STRATEGIC PLANNING, POLICY DEVELOPMENT AND COORDINATION
Implementation of this new format will enable to:
• maintain the government e-archive for long-term storage of documents;
• reconcile draft acts in electronic form;
• enter into and sign agreements in electronic form;
• expand cross-border interaction and shift away from paper-based documents when dealing with European partners by using the standard applied in the EU.
CHALLENGES ENCOUNTERED DURING IMPLEMENTATION OF THIS REFORM AREA IN 2018
In this reform area, activities foreseen for the development and adoption of legislative changes aimed to relieve the Cabinet of Ministers of non-essential powers have not been implemented, primarily due to absence of agreement on this issue.
Partial implementation is recognized for activities related to improvement of the strategic planning system by amending the Government's Rules of Procedure, elaborating strategic planning methodologies, and drafting of programmatic documents. The reasons for delays include absence of consensus about the design of strategic planning system, on the one hand, and lack of adequate analytical and expert support, on the other hand.
Despite the delay, the objectives regarding enhanced strategic planning and improved policy-making remain relevant and are part of the updated PAR Strategy Implementation Plan for 2019.
The challenges for 2019 will include drafting of amendments to the legislation, Government's Rules of Procedure, their adoption and effective implementation.
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REFORM AREA 3. CIVIL SERVICE AND HUMAN RESOURCE MANAGEMENT In 2018, this reform area focused on improvement of selection and performance appraisal procedures as well as modernization of civil servants’ professional training, building reform staff teams, building capacity of NACS and HRM units, and development of HRMIS.
In 2018, the following measures were implemented to ensure appropriate recruitment conditions – planning and management of competitions, engagement of external experts, etc.:
• the competitive recruitment procedure was improved to optimize individual stages of competition; professional competency requirements were updated through respective government regulation;
• case-based tasks for assessment of RSP candidates' competencies were updated;
• testing of knowledge of special legislation was introduced;
• training was delivered to members of selection commissions (seminars, workshops, online courses) with award of completion certificates.
CC 28,100 CIVIL SERVANTS RECRUITED IN 2018 THROUGH COMPETITIONS
Seeking to select the best talent for positions in civil service, the Government adopted a series of changes in competitive recruitment procedure for category A positions and RSPs. For example, the Government approved required proficiency in a foreign language which is one of the official languages of the Council of Europe and higher competency requirements for candidates to category A positions. The adopted changes also include automated scoring of professional knowledge, reduced number of stages, lowering of passing score, motivation questionnaire and improved procedure checking foreign language proficiency. These changes optimized the competition, making it more effective and transparent.
In 2018, 21 competitions had been announced and 19 were completed for category A positions, including:
• 2 competitions for vacant position of Deputy State Secretary of the Cabinet;
• 4 competitions for vacant positions of head of central executive bodies (State Service for Veteran Affairs and Participants of Anti-Terrorist Operation; National Health Service; State Service for Maritime and River Transport; State Inspection for Energy Oversight);
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REFORM AREA 3. CIVIL SERVICE AND HUMAN RESOURCE MANAGEMENT
• 3 competitions for vacant positions of first deputy head of central executive bodies (State Migration Service; State Service for Maritime and River Transport; State Reserve Agency);
• 7 competitions for vacant positions of deputy head of central executive bodies (State Audit Service; E-Governance Agency; State Service for Food Safety and Consumer Protection; State Reserve Agency – 2 positions; State Service for Maritime and River Transport; State Cinematography Agency);
• 1 competition for vacant position of Secretary of Accounting Chamber – head of apparatus;
• 1 competition for vacant position of Head of Secretariat of Verkhovna Rada Commissioner on Human Rights;
• 1 competition for vacant position of head of apparatus (State Property Fund).
Recruitment dynamics for category A positions:
2016 2017 2018
Competitions announced 109 99 21
Competitions conducted 109 97 19
Winners appointed 36 100 14
Vacant positions 44 50
As for recruitment to category B and C positions: 6,656 civil servants were appointed in Quarter IV 2016; 32,325 civil servants were appointed in 2017. As shown below, 28,100 civil servants were appointed in 2018:
QUARTER CATEGORY B CATEGORY C
I 1241 6301
II 1035 5130
III 1039 5195
IV 1623 6536
Year 4938 23162
TOTAL 28100
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REFORM AREA 3. CIVIL SERVICE AND HUMAN RESOURCE MANAGEMENT
CC OVER 500 CIVIL SERVANTS RECRUITED THROUGH COMPETITIONS AS REFORM STAFF
As of the end of 2018, 58 directorates (general departments) were created in 10 pilot ministries, SCMU, NACS and E-Governance Agency, with 532 RSPs employed as of 31 December 2018. Detailed information on RSP recruitment is provided in Annex 3.
CMU Resolution of 18 August 2017 No. 647 regarding implementation of the comprehensive public administration reform established upper limits for reform staff positions in directorates, SCMU and ministries, general departments in CEBs and for the Government Office for European and Euro-Atlantic Integration. These numbers are considered throughout the year in the distribution of budget funds. The resolution also established temporary upper limits for staffing of apparatus in individual CEBs.
In each pilot institution, the first step in planning of RSP recruitment for 2018 was to define their target structure. Each pilot institution designed and approved its staffing plan according to functional areas of SCMU, respective ministries and other institutions.
In this process, priority is being given to quality rather than quantity of recruited RSPs.
On the whole, 43 Director Generals were selected to lead directorates, with men making up 58% and women – 42%. Among the selected candidates, 53% had been civil servants in the same institution, and 25.5% had no prior experience in civil service.
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REFORM AREA 3. CIVIL SERVICE AND HUMAN RESOURCE MANAGEMENT
WINNING CANDIDATE FOR DIRECTOR GENERAL POSITION
HIGHER EDUCATION/ MASTER'S DEGREE CIVIL SERVANT OF THE SAME 100% INSTITUTION 53%
AGE 31-40 40%
ADDITIONAL EDUCATION: ENGLISH study abroad, LANGUAGE workshops PROFICIENCY 44% intermediary level + 35%
18,703 citizens participated in RPS competitions submitting over 30,000 applications, with average competition rate of 25 contenders per post. 28 persons among the reform staff were dismissed in the period from 1 January through 31 December 2018 was.
Over 27,000 applications are registered on the career.gov.ua portal that posts information about the RSP recruitment process and vacancies.
Among all selected candidates for RSPs 54% are women and 46% are men (although among DGs 58% are men). 38% of all selected candidates had no prior experience in civil service and 62% had such experience, including 40% of those who served in a different administration body. This suggests quite high rate of civil service renewal.
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REFORM AREA 3. CIVIL SERVICE AND HUMAN RESOURCE MANAGEMENT
CC RSP COMPETENCY REQUIREMENTS IMPROVED
DIRECTOR GENERAL LEADER OF EXPERT GOVERNMENT AND DEPUTY GROUP AND EXPERT EXPERT DIRECTOR GENERAL SUB-GROUP
Strategic vision Conceptual and Effective analysis innovative thinking and conclusions Leadership Organizational Communication Communication and management and interaction interaction HRM Delivery of results Delivery of results Communication and Stress resilience Stress resilience interaction Motivation Motivation Stress resilience Analytical skills Analytical skills Motivation
Analytical skills
CC ONLINE COURSE FOR CANDIDATES – NEW CIVIL SERVICE: KEY INSIGHTS IN PLAIN TERMS – DEVELOPED AND LAUNCHED
The purpose of the course is to promote attraction of best talent and provide help in preparation for RSP competitions, offering on an open and free basis:
• access to various information materials on PAR and basic knowledge on policy analysis and strategic planning, learning about competitive recruitment stages;
• practical tips and recommendations from DG experts and other candidates via forums;
• trial test on legislation, analytical and verbal skills, case-based assignments.
The Vacancy Fair organized by Kyiv Post included masterclasses for potential candidates regarding stages of competitive recruitment. To promote recruitment, vacancies from career.gov.ua are also posted on work.ua, providing job description and requirements.
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REFORM AREA 3. CIVIL SERVICE AND HUMAN RESOURCE MANAGEMENT
CC CENTRALIZATION OF COMPETITIVE RECRUITMENT INITIATED
In 2018, the decision was taken to create an assessment centre for candidates to civil service positions, seeking further optimization and professionalization of competitive recruitment. This requires from NACS taking actions to reorganize the All-Ukrainian In-Service Training Centre re-focusing it on centralized assessment of candidates. In 2019, the assessment centre will roll out administration of automated stages of selection process.
CC FULL CYCLE OF PERFORMANCE APPRAISAL IMPLEMENTED FOR THE FIRST TIME
In 2018, the full cycle of civil servants' performance appraisal was implemented for the first time, including definition of annual performance indicators, assessment against these indicators and suggestions for individual programmes for enhancement of qualification.
Performance indicators for senior civil servants are established by the Cabinet of Ministers. The same performance indicators related to ensuring effective work of a ministry were established for all State Secretaries of Ministries. For heads of central executive bodies, two performance indicators were established in a centralized manner by the Cabinet of Ministers, and the rest were left at the discretion of a minister coordinating the respective institution.
On 12 December 2018, the Government approved performance appraisal results of senior civil servants who are appointed and dismissed by the Cabinet of Ministers.
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REFORM AREA 3. CIVIL SERVICE AND HUMAN RESOURCE MANAGEMENT
ANNUAL APPRAISAL SYSTEM
1. 2. 3. 4. 5. SETTING QUARTERLY EVALUATION ENDORSEMENT DECISIONS TASKS REVIEW INTERVIEW OF REPORT and key performance of tasks and key and individual by head of stand-alone on bonus award, professional indicators for each civil performance appraisal reports structural unit training needs or follow-up servant in categories indicators prepared by interview in case of negative F, B and C immediate superior assessment - not earlier 2-5 tasks than after three months.
ANNUAL CYCLE
To provide methodological support to annual performance appraisal process, NACS:
• produced 4 methodological guides and created a resource on Key Performance Indicators on DESPRO Community of Practice – Sustainable Development platform;
• delivered a series of workshops presenting the practicum "How to formulate tasks and key performance indicators?" explaining what constitutes the task and performance indicator for a civil servant, what are the steps in defining tasks and key indicators related to performance, effectiveness and quality of work delivered by civil servants.
170 civil servants employed as reform staff went through performance appraisal and among those 125 received ‘excellent’ grades and 45 received ‘positive’ grades. The largest number of excellent grades are in the Ministry of Justice – 24; the largest number of RSPs who received positive grades are in SCMU – 18.
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REFORM AREA 3. CIVIL SERVICE AND HUMAN RESOURCE MANAGEMENT
CC INSTITUTIONAL CAPACITY OF NACS ENHANCED
According to the RSP Concept, NACS established general departments for HRM in civil service and for professional development of civil servants and local self- government officials.
In total, NACS conducted 31 competitions to vacant civil service positions, including 11 RSP competitions, based on which 22 persons were appointed in 2018, including 8 persons appointed as reform staff.
As of 1 January 2018, 5 persons were appointed as reform staff in NACS; during 2018 another 16 persons were appointed and 3 persons were dismissed. In total, NACS staffing plan envisages 20 RSPs – 11 positions in the General Department for HRM in Civil Service and 9 positions in the General Department for Professional Development of Civil Servants and Local Government Officials.
The portal career.gov.ua was modernized and transferred to a more powerful platform in 2018, which was supported by the EU-funded project "Support to Strategic Communication and Raising Awareness of Public Administration Reform in Ukraine", opening the possibilities for further expansion and integration with other databases. It is also planned to extend the portal functionality onto all vacancies in civil service to provide for fully automated submission of documents and integration with HRMIS.
CC CAPACITY OF HRM UNITS STRENGTHENED
In 2018, NACS designed an HRM capacity assessment methodology and conducted pilot assessments in 6 institutions responsible for development and implementation of key national reforms: Ministry of Finance, Ministry of Culture, Ministry of Justice, Ministry of Infrastructure, NACS and E-Governance Agency. Also, two surveys were carried out in HRM units (covering 659 HRM employees), helping to identify the needs regarding methodological support.
In order to bring HRM system in line with the European standards and enhance NACS capacity regarding comprehensive development of civil service and HRM staff, 15 seminars, conferences and workshops were conducted focusing on implementation of legislation and modern HRM tools in civil service.
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REFORM AREA 3. CIVIL SERVICE AND HUMAN RESOURCE MANAGEMENT
During 2018, in order to provide methodological assistance to HRM units, NACS staff prepared 6 methodological guides on:
• How to prepare a pool of test items testing the knowledge of special legislation and answer options;
• How to identify performance results of civil servants employed in category B and C positions;
• How to define tasks and key indicators related to performance, effectiveness and quality of work delivered by senior civil servants;
• How to design individual programmes for professional competency development;
• How to define tasks and key indicators related to performance, effectiveness and quality of work delivered by civil servants employed in category B and C positions;
• How to identify performance appraisal results for senior civil servants.
CC ENHANCED QUALIFICATION OF HRM UNITS
150 employees of HRM units enhanced qualification regarding organization and implementation of performance appraisal. The X Annual Richelieu Readings included a workshop for HRM staff "Appraisal in 2018: Role and Place of HR Communication". The in-service training programme "Organization and delivery of internal training on performance appraisal in public administration" was developed and is used by HRM units in their practical work.
A national competition for Best HRM Practices was conducted and involved 23 HRM units in central and local executive bodies.
CC HRMIS PROCUREMENT CONDUCTED
In 2018, technical and tender documentation was prepared, and tender procedure was carried through, yielding a winning bidder for procurement of HRMIS software. Procurement of services related to HRMIS implementation followed the World Bank procedure, according to the schedule.
The purpose of HRMIS is to provide an effective, transparent and reliable tool for human resource and payroll management in ministries, CEBs, regional and district state administrations, other public administration institutions and authorities, using automated business processes for HRM and payroll.
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REFORM AREA 3. CIVIL SERVICE AND HUMAN RESOURCE MANAGEMENT
IT SYSTEM FOR HRM & PAYROLL
AS IS: WILL BE:
Manual processing Reports generated and consolidation of automatically paper-based data on over online 250,000 civil servants
All work is mainly Work is performed done on paper electronically (no paper)
28% of central-level 100% of institutions' institutions HRM takes place within a use IT systems single electronic system to store data
Written requests Automatic checks for background checks through all necessary (the entire process databases (the entire takes several weeks) process takes half-day).
Manual calculation of seniority for each Instant automatic civil servant for: calculation of all parameters - assignment of ranks; - calculation of salary; - calculation of benefits
Procurement and roll-out of HRMIS is financed through the Strengthening Public Resource Management Project in the framework of Partnership Programme of the EU and the World Bank in Europe and Central Asia and the Single-Donor Trust Fund (EURoPAF – EU Programme for the Reform of Public Administration and Finances), under administrative management of the International Bank for Reconstruction and Development. The project is implemented by the Ukrainian National Agency on Civil Service.
In 2018, Ukraine's national budget financed procurement of server equipment and building of the data processing centre for HRMIS for the total amount of 18,925.46 thousand UAH. Procurement of services of six consultants was financed from the grant and amounted to 2,964.16 thousand UAH.
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REFORM AREA 3. CIVIL SERVICE AND HUMAN RESOURCE MANAGEMENT
IT SYSTEM FOR HRM & PAYROLL
FOR MANAGERS FOR HRM AND 1 2 FINANCE UNITS
Analytical reports in real time: Payroll and calculation of salaries - number of positions in a staffing plan - vacancies Evaluation of civil servants' - actual headcount effectiveness Analysis of composition Generation of reports of civil servants and non-civil servants (support staff) in any Building a pool of potential institution and department candidates for civil service Structure of an institution Analysis of competencies and analytical data on filling and training needs positions according to staffing plan Electronically kept personal files Financial reporting Automatically generated documents and supervision of competitions Analysis of candidates FOR THE Analysis of cadre reserve, FOR CIVIL planning, employment and 3 SERVANTS 4 PUBLIC career of civil servants Management of business travel Drawing up requests for Monitoring of public institutions and short-term needs leaves and business travel for business travel Own account for self-service Control of the national budget Management of transfer requests, as regards civil service transfer procedures and signing up for future transfers. Possibility to view and analyze Information on human resources salary for any period and wage bill in public institutions Keeping database on training courses and internships Analysis of competencies, as per job requirements. development and training plans Monitoring and control of personnel efficiency in public institutions Keeping time sheets, Generation of necessary reports annual leaves and additional leaves. Information on individual Personal tasks and key salaries of civil servants performance indicators
HRMIS will address a wide range of HRM issues and bring savings in terms of time and budget resources, while significantly increasing accountability of government bodies to the public. The Ukrainian Government received financing for HRMIS procurement and implementation from the European Union, and the HRMIS project will be implemented with support from the International Bank of Reconstruction and Development.
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REFORM AREA 3. CIVIL SERVICE AND HUMAN RESOURCE MANAGEMENT
CC REFORM OF CIVIL SERVANTS' PROFESSIONAL TRAINING LAUNCHED
In 2018, the Cabinet of Ministers approved the action plan for implementation of the Concept for the reform of professional training system for civil servants, heads of local state administrations, and local self-government officials.
The Concept envisages, inter alia, that training is to be focused on individual needs; therefore, in 2018 individual programmes of professional competency enhancement were designed for the first time, following performance appraisal results.
Striving to improve quality of education in the field, NACS approved criteria for competitive selection of education providers to be contractors of the government as regards delivery of master's programmes in Public Administration and Management, and in-service training for incumbent civil servants and local self-government officials. Application of these criteria in evaluation of education institutions' offers enabled to assess objectively their capacity and select higher education and post-diploma education institutions for performance of government contracts based on principles of fair competition, openness and transparency.
On the whole, 21 higher education institutions were selected: 17 – for delivery of in-service training for incumbent civil servants and local self-government officials; 7 – for delivery of professional programmes; 10 – for delivery of short-term programmes; and 8 – for delivery of training finance management programmes.
Two specialized short-term mixed-mode courses (face-to-face plus distance learning) were designed and implemented using the Prometheus platform – a civil society MOOC (massive open online courses) project:
• HRM in Civil Service – a course for heads and deputy heads of HRM units in public administration;
• RSP Competitive Recruitment Procedure – for civil servants included in selection commissions.
The Coordinating council on professional training of civil servants and local self- government officials was also established in 2018.
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REFORM AREA 3. CIVIL SERVICE AND HUMAN RESOURCE MANAGEMENT
CC THE NACS COUNCIL FOR HRM IN CIVIL SERVICE COMMENCED WORK
The Council included representatives of HRM departments from 68 central executive bodies and convened three times.
The Councils governing documents, meeting minutes, agendas, presentations and other materials are published on the NACS official website.
CC A STUDY OF PUBLIC ADMINISTRATION CULTURE AND WORK CLIMATE IN CIVIL SERVICE WAS CONDUCTED FOR THE FIRST TIME USING THE STANFORD UNIVERSITY METHODOLOGY
As part of implementation of the Multilateral Memorandum on Strategic Partnership and Cooperation between the Cabinet of Ministers of Ukraine, Centre on Democracy, Development, and the Rule of Law at Stanford University (CDDRL), Kyiv School of Economic (KSE) and Professional Government Association of Ukraine (PGA), the Civil Service Feedback Loop project was implemented in Ukraine in 2018 for the first time, aiming to conduct a study of organizational culture and work climate in Ukrainian civil service.
The project involved anonymous survey of civil servants employed in central apparatus in ministries and SCMU – all in all, almost 2,000 civil servants were surveyed from 14 ministries and SCMU.
Among the respondent 67% were women and 33% were men, with the following distribution by position categories:
• Category А – 0.2 %;
• Category B – 18.4 %;
• Category C – 81.4 %.
The survey findings will help elaborate recommendations on how to increase competitiveness of the state as employer, raise effectiveness of civil service and strengthen Government's capacity to promote development of Ukraine. They will also feed into comparative study conducted by CDDRL on development of governance across the globe. The survey findings are planned to be made public in the first half of 2019.
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REFORM AREA 3. CIVIL SERVICE AND HUMAN RESOURCE MANAGEMENT
CHALLENGES ENCOUNTERED DURING IMPLEMENTATION OF THIS REFORM AREA IN 2018
The salary reform and introduction of job classification remain to be the issues requiring special attention. At the end of 2018 NACS, upon Prime Minister's instruction, collected data on the actual situation with salaries and started respective analysis. As a result, a policy proposal shall be prepared on salary system reform, and respective tasks are stipulated in the revised PAR Strategy Implementation Plan for 2019.
Also, HRMIS development is being carried out with significant delay from the initial plan. The delay has been caused, among other factors, by lengthy procurement procedures of the World Bank that is a key partner of the Ukrainian Government in this project. The contract for HRMIS development was signed early in 2019, which will accelerate its implementation.
The challenges for 2019 will include drafting and adoption of amendments to the civil service legislation, required also to modify the salary system and launch full operation of the assessment centre.
In addition, practical application of competitive recruitment revealed problem areas that need to be addressed in 2019, namely:
• External experts in HRM and respective policy areas were not consistently engaged in the work of selection commissions;
• Some institutions lack proper technical provisions for testing (computers, etc.);
• In some cases, the established competition procedures were not strictly followed;
• The competition process was complicated by overloading of selection commissions due to parallel announcement of competitions for a large number of vacancies.
Report Implementation of Ukraine’s 2016-2020 Strategy for Public Administration Reform in 2018 46
REFORM AREA 4. ACCOUNTABILITY – ORGANIZATION, TRANSPARENCY, OVERSIGHT The objective for this area formulated in the PAR Strategy is to build ministries' capacity for policy-making and effective managerial decision-making. The main challenge was to finalize the pilot reform project in the following ministries: Ministry of Agrarian Policy, Ministry of Energy, Ministry of Infrastructure, Ministry of Culture, Ministry of Education, Ministry of Healthcare, Ministry of Regional Development, Ministry of Social Policy, Ministry of Finance and Ministry of Justice.
CC THE CONCEPT OF OPTIMIZATION OF CENTRAL GOVERNMENT SYSTEM UPDATED
Pilot ministries were implementing activities aimed to align their structure with the provisions outlined in the Concept of optimization of central government system adopted in December 2017 and updated in 2018 on the basis of SIGMA assessment.
The principal provisions of the revised Concept are:
• Requirements are defined for the design of a ministry's structure for 8 pilot ministries. Other ministries may join the pilot project, subject to proposal of respective Minister;
• Organization of central government system should meet the European standards of good administration formulated in the Principles of Public Administration developed by SIGMA;
• Main tasks of ministries are defined as strategic planning, ensuring public policy development, monitoring and coordination;
• Ministry's activity should primarily focus on elaboration of public policy documents and legislative drafting; other central executive bodies may propose to ministries adjustment of public policy or improvement of legislation in respective areas;
• Policy implementation functions in ministries should be minimized. Ministries will gradually dispose of functions related to administrative services delivery, inspection and oversight, and state-owned property management. Policy implementation functions are to be concentrated in other central executive bodies;
• Ministries should gradually shift towards decentralized management, as defined by the law, stipulating delegation of authority from top leadership of ministries and other central executive bodies to heads of respective units;
• RSP recruitment shall continue. The strategic vision of the Cabinet of Ministers of Ukraine is to gradually close the gap between reform staff and other civil servants both in terms of competitive recruitment and levels of remuneration.
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REFORM AREA 4. ACCOUNTABILITY – ORGANIZATION, TRANSPARENCY, OVERSIGHT
CONCEPT OF OPTIMIZATION OF CENTRAL GOVERNMENT SYSTEM
Has Mission
Develops, plans, monitors and evaluates Functions correspond policy outcomes to present-day challenges and objectives of the Government
NEW MINISTRY
Is in line with European best practices
Policy development and polity implementation functions are separated Clear division of responsibilities
CC THE PROCESS OF RELIEVING PILOT MINISTRIES OF NON-ESSENTIAL FUNCTIONS IS UNDERWAY
Core functions of ministries – policy development and control of policy implementation – are concentrated in directorates, and the target model stipulates that non-essential functions of administrative services delivery, inspection and oversight and state-owned assets management shall be first concentrated in stand-alone units and then gradually transferred.
Identification of functions that are non-essential for a ministry and delineation between functions of directorates, policy implementation units and secretariat in a ministry was carried out on the basis of functional reviews conducted in pilot ministries.
The functional review methodology was discussed and approved by the PAR Coordinating Council on 25 June 2018 that recommended application of this methodology by pilot ministries.
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REFORM AREA 4. ACCOUNTABILITY – ORGANIZATION, TRANSPARENCY, OVERSIGHT
Functional reviews were conducted in pilot ministries, with subsequent reporting on results, in particular on identified non-essential functions and respective proposals. These results served as basis for proposed target structures of ministries that will be in line with ministries’ needs and CMU Resolution No. 946 on finalization of reform in ministries’ apparatus.
On 13 December 2018, the PAR Coordinating Council approved four out of eight target structures – for the Ministry of Social Policy, Ministry of Education, Ministry of Agrarian Policy and Ministry of Culture. Other four ministries were advised to revise their target structures according to SCMU recommendations.
Following the Government decision, two pilot ministries – Ministry of Finance and Ministry of Justice – shall be exempt from requirements established by the CMU Resolution No. 946 on finalization of reform in ministries’ apparatus. However, activities related to the reform of apparatus shall continue to be carried out according to the CMU Resolution No. 644 on organization of structure of SCMU, apparatus in ministries and other CEBs. This decision was motivated by specific activity of these ministries performing a considerable scope of centre- of-government functions related to expert review of draft acts.
CHALLENGES ENCOUNTERED DURING IMPLEMENTATION OF THIS REFORM AREA IN 2018
Reorganization of apparatus in pilot ministries is moving slower than expected. One of the reasons behind the delay is difficulty in formulation and introduction of common approaches to reorganization due to high level of ministry’s autonomy when it comes to their organizational structure. In terms of delivery of the PAR Strategy Implementation Plan, in this reform area the activity of adjusting the regulation on ministries and their apparatus structure on the basis of functional review outcomes, planned for Quarter IV 2018 was not implemented on time.
In order to accelerate the reorganization of ministries, the Government adopted Resolution of 24 October 2018 No. 946 on finalization of the reform if ministry's apparatus in selected ministries and also updated the Concept for optimization of central government system (CMU Ordinance of 27 December 2017 No. 1013). The PAR Coordinating Council closely monitors the process of reorganization of each ministry that should be completed in the first half of 2019.
Challenges for 2019 in this area will include building mechanisms for relieving ministries from non-essential functions, drafting and adoption of relevant amendments to legislation.
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REFORM AREA 4. ACCOUNTABILITY – ORGANIZATION, TRANSPARENCY, OVERSIGHT
THE TARGET STRUCTURE OF MINISTRY’S APPARATUS
MINISTER DEPUTY FIRST MINISTER DEPUTY DEPUTY DEPUTY ON EU MINISTER MINISTER MINISTER INTEGRATION
STATE SECRETARY
STRATEGIC Expert Expert group PLANNING group DIRECTORATE Expert sub-group
POLICY POLICY Expert Expert group DIRECTORATE group DEVELOPMENT Expert sub-group UNITS (option 1)
Expert Expert group group POLICY Expert sub-group DIRECTORATE (option 2) Chief Chief Division Division Section
POLICY IMPLEMENTATION DEPARTMENT Division Section Sector UNITS
DEPARTMENT SUPPORT Division Section Sector UNITS Division (SECRETARIAT) Section Section
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REFORM AREA 5. ADMINISTRATIVE SERVICES DELIVERY AND ADMINISTRATIVE PROCEDURE The objectives in this reform area included drafting of the law on administrative procedure, improving quality and accessibility of administrative services by expanding the network and menu of services provided through one-stop- shops, further decentralization of service delivery, digitalization of services, implementation of electronic interaction system for public registries and expansion of e-identification.
CC THE DRAFT LAW ON ADMINISTRATIVE PROCEDURE PREPARED AND APPROVED BY THE GOVERNMENT
One of the tasks the Government is working on is preparation for implementation of general administrative procedure that would guarantee each person’s right to impartial handling of a case within reasonable time limits, including:
• the right to be heard before adoption of any individual decision with potential negative consequences for a person;
• the right to access case file that concerns a person;
• obligation of administrative authorities to justify their decisions, etc.
These rights should be defined in legislation and the respective provisions should apply to all executive bodies and local self-governments as well as their officials and other entities charged with public administration functions.
In order to elaborate the draft, the Ministry of Justice created a dedicated working group. Ultimately, the Cabinet of Ministers approved the draft Law on Administrative Procedure and submitted it to the Verkhovna Rada (registration number 9456 of 28 December 2018).
CC THE NETWORK OF ONE-STOP-SHOPS EXPANDED – 54 NEW ONE- STOP-SHOPS OPENED
Improved quality of administrative service delivery is achieved through improving the work of one-stop-shops for service delivery and expansion of their menu as well as digitalization of services.
In 2018, the network of one-stop-shops considerably grew, with increased number of administrative services provided through them. During 2018, 54 new one-stop-shops opened their doors and many other existing one-stop-shops were refurbished and modernized. In parallel, there is also a growing number of local self-governments (including amalgamated communities) that provide services for residence of respective districts, reducing the number of services centres
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REFORM AREA 5. ADMINISTRATIVE SERVICES DELIVERY AND ADMINISTRATIVE PROCEDURE
operated by district state administrations. Thus, the authority and responsibility for delivery of administrative services are increasingly assumed by local self- governments.
DEVELOPMENT OF A NETWORK OF ONE-STOP-SHOPS
In 2018 in Ukraine
new one-stop-shops and local offices New one-stop-shops New one-stop-shops became operational in Quarter I-II in Quarter III-IV
Currently, there are 778 operational one-stop-shops in Ukraine: 325 are established by local self-governments, including 125 in amalgamated communities, and 453 are established by local state administrations. Also, local authorities opened 84 remote workplaces for administrators, including 68 in amalgamated communities, and run 3 mobile centres.
In 2018, almost 15 million services were provided through one-stop-shops. On average, 57,000 services are provided on a daily basis. The most frequently claimed services are business and property registration, requesting data from Land Cadastre, place of residence registration, issuance of passports and permits.
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CC EXPANSION OF ONE-STOP-SHOPS’ MENU AND DECENTRALIZATION OF SERVICE DELIVERY
A pilot project launched in October 2018 is being implemented providing initial registration of vehicles and replacement of driver's license through the one- stop-shops in the city of Kyiv and soon will be expanded onto other regions.
As of 1 January 2019, 134 one-stop-shops with 276 installed workstations are connected to the Unified State Demographic Registry to process issuance of Ukrainian passports in the form of ID card and issuance of travel passports.
Access to data in the National Land Cadastre is granted to:
• 97 one-stop-shops as well as 72 rural councils, 59 city councils 1 district council;
• in the viewing regime – 46 one-stop-shops as well as 216 rural and city councils.
90% of one-stop-shops have access to the Unified State Registry of legal entities, individual entrepreneurs and associations of citizens as well as National Registry of property rights.
In the majority of one-stop-shops, the size of waiting and service areas meets the established requirements.
As part of Government's proposals on further decentralization of administrative service delivery, the draft law on amending the Law on Civil Registration and some other legislative acts of Ukraine regarding decentralization and bringing civil registration services closer to citizens was submitted to the Verkhovna Rada and is pending review. This draft law proposes to hand over civil registration powers to local self-governments, in particular to cities of regional significance, and to simplify the service delivery process.
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REFORM AREA 5. ADMINISTRATIVE SERVICES DELIVERY AND ADMINISTRATIVE PROCEDURE
WAITING AND SERVICE AREAS IN ONE-STOP SHOPS
21% 2 % 50-70 m 44 2 < 50 m
17% 18% 70-100 m2 > 100 m2
CONNECTION TO REGISTRIES
90% 93% 21% 16%
Unified State Registry State Registry State Unified of Legal Entities, of Property Rights Land Cadastre State Demographic Individual Entrepreneurs Registry and NGOs
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CC IN 2018 THE USE OF E-SERVICES GREW THREEFOLD
Introduction of e-services not only contributes to convenience and accessibility but also helps minimize corruption risks.
The Unified State Portal of Administrative Services my.gov.ua provides information on administrative services and possibilities for their online delivery for service users. It contains information on:
• over 1,000 administrative services (legal acts regulating these services, electronic application forms (doc and pdf formats) and other required documents, place and regime of delivery;
• 44 public authorities and over 750 one-stop-shops, their locations, working hours and links to websites.
The user has the possibility to:
• Create a personal account using login and password, electronic digital signature or Bank ID of the National Bank of Ukraine;
• Apply for and receive electronically 100 administrative services, namely: 15 services of MEDT, 71 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, 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 Labour Service, one service of State Aviation Service, three services of the National Commission for State Regulation of Financial Services Market;
• Make appointment via electronic queue system to receive Ukrainian passport and Ukrainian travel passport (10 services);
• Submit reports regarding district heating, district water supply and sewage to the National Commission for State Regulation of Energy and Public Utilities (41 reports from business operators);
• Following links, receive 56 services in electronic form on other websites;
• Pay administrative fees using payment systems EasyPay, Portmone, iPay and PayMaster.
The Portal provides access to information about services and possibility to apply for people with visual impairments.
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REFORM AREA 5. ADMINISTRATIVE SERVICES DELIVERY AND ADMINISTRATIVE PROCEDURE
The Government Portal kmu.gov.ua provides access to 118 top-priority services for citizens and business.
In 2018, E-Governance Agency audited the e-service delivery by CEBs. Performance with regard to introduction of online services was assessed in terms of number of services developed at:
• Level III – online application and payment;
• Level IV – fully integrated service.
These requirements for e-service delivery are in line with the UN methodology and were made part of national legislation by the Concept for development of e-services in Ukraine. As of 1 January 2019, 17 services are developed at Level III and 74 services are developed at Level IV.
In the process of digitalization of services, the government prioritizes those services that are most frequently claimed by society and businesses and yield significant anti-corruption effect. Among the key tasks in 2018 was to introduce 100 e-services. This target was achieved – by the end of the year the Government Portal functioning as a ‘single window’ offered 118 e-services.
Services that are already available online include:
• social services: granting of child birth allowance, housing subsidies, some services of the Pension Fund;
• services for business: business registration, issuance of licenses and permits, obtaining abstracts and certificates online;
• services in construction sector: 80% of construction in Ukraine can be launched and subsequently put into operation online (for CC1 class). The first fully automated service without any face-to-face contact with officials has been introduced in this area – launch of construction works for CC1 class;
• services in security and justice sector: it is possible to now receive certificate on absence of conviction, absence of corruption offence, and file application to the court online;
• services for vehicle owners: individual driver’s online account with the functionality allowing owners to check information about their vehicle, driver's license, fines, make appointment using electronic queue to visit service centres of the Ministry of Internal Affairs, etc.;
• services in transport sector: individual transport operator's online account with the functionality allowing operators to issue, extend, qualify and cancel license for passenger and freight carriage and promptly amend the data on their enterprises.
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CC INTRODUCTION OF E-IDENTIFICATION COMMENCED
Provision of modern e-services requires e-identification. The Law on Electronic Trust Services entered into force on 7 November 2018 introducing models and principles of electronic trust services of the EU without interrupting interaction between actors in the area of electronic digital signature established in Ukraine.
The Law will also open up the opportunity for broad launch of such e-tools of identification as MobileID and BankID.
As required by the Law, the E-Governance Agency developed and launched testing of the integrated e-identification system id.gov.ua intended for technological support of user-friendly, accessible and secure e-identification and authentication of individuals and legal entities, support of its functioning, compatibility and integration of e-identification schemes, their interaction with web-portals of other e-services and systems of electronic interaction between public authorities, individuals and legal entities, ensuring information and personal data protection on the basis of common requirements, formats protocols and classifiers.
The integrated e-identification system will connect all e-identification service providers (digital signature, MobileID, BankID), including the Accredited Centre for Key Certification of the State Fiscal Service. This will enable to implement the "single window" principle when providers of services requiring e-identification
E-IDENTIFICATION
The Law on Electronic Trust Services Three major mobile operators – Kyivstar, Vodafone and lifecell came into force on 7 November 2018. are ready for full-fledged implementation of MobileID.
Integrated E-Identification System E-signature BankID MobileID IDcard id.gov.ua has been launched connecting all providers of e-identification services.
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REFORM AREA 5. ADMINISTRATIVE SERVICES DELIVERY AND ADMINISTRATIVE PROCEDURE
(banks, State Treasury, Land Cadastre, Ministry of Social Policy, etc.) will be able to receive information about clients through a single inquiry, without using multiple accounts in different IT systems.
At the end of 2018, Ukrainians received access to the mobile identification service. Using MobileID, users can use their phones to sign electronic documents and applications. All electronic services that are being implemented by default have the possibility to use MobileID access.
CC DRIVER'S ONLINE ACCOUNT LAUNCHED ON 21 DECEMBER 2018
Driver's online account provides access to 5 services:
• Receiving up-to-date information on the vehicle and driver's license;
• Checking and paying administrative fines;
• Checking the vehicle by VIN code;
• Sign up for electronic queue to the service centre of the Ministry of Internal Affairs;
• Order customized license plate.
Driver's online account is accessible at e-driver.hsc.gov.ua and the Government Portal at kmu.gov.ua under E-Services.
CC THE WORK COMMENCED ON A PACKAGE OF E-SERVICES RELATED TO BIRTH OF A CHILD
Ukraine changes the philosophy underlying development of e-services: Government strives not only to create new e-services but also reengineer them so that they will be organized around life events and business situations of those who require them.
Also, all electronic services that are being implemented by default have the possibility to utilize MobileID access.
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REFORM AREA 5. ADMINISTRATIVE SERVICES DELIVERY AND ADMINISTRATIVE PROCEDURE
CC TREMBITA, THE SYSTEM OF ELECTRONIC INTERACTION WITHIN THE PUBLIC ADMINISTRATION, LAUNCHED INTO PILOT OPERATION
TREMBITA is one of the key elements of the infrastructure of e-services for citizens and business providing easy and unified access to the data contained in national registries.
It is a system of electronic interaction between Ukrainian public registries allowing institutions to share necessary data in a secure and fast mode in order to have better interaction with citizens and business.
Currently, Ukraine has over 350 public registries held by more than 80 public institutions. Each year, the country spends 500 million UAH of budget funds for maintenance of 25 top-priority national registries, with over 80% of all money going to procurement of supporting equipment. Earlier, public registries were generally created in an ad hoc manner, so now it is a challenge to control their number, purpose and keep track. Only 60% of public registries have attested comprehensive data protection systems, which poses risks as to security of data held in insufficiently protected environment. The data audit initiated by the E-Governance Agency revealed that registries have almost 80% of identical non-technological fields, which means that a lot of personal information about citizens was duplicated and accumulated in multiple databases. TREMBITA offers the capacity to stop duplication and accumulation of redundant information, to structure registries and optimize related costs.
TREMBITA has the following characteristics:
• It is a decentralized system, i.e. fully distributed and fault-tolerant – its use does not require centralization of data and change of owner.
• Different institutions receive access to data from national registries according to their mandate, leading to improved quality of e-services provided to citizens and business.
• It enables easy and unified interaction between IT systems by using a single set of rules and formats.
• It is fault-tolerant due to decentralized installation of elements and direct data sharing between participants without having to pass through interim nodes.
• It has high level of security ensured by use of electronic seal and encryption of all transmitted data as well as having protocols of events, control of access to web-services and measures to counteract denial of service attacks.
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REFORM AREA 5. ADMINISTRATIVE SERVICES DELIVERY AND ADMINISTRATIVE PROCEDURE
Following the launch of TREMBITA roll-out, IT systems of public authorities are currently being integrated. The top-priority task in 2019 will be to connect the most important registries, in particular those of the Ministry of Justice, Ministry of Social Policy, Pension Fund, State Fiscal Service, Ministry of Internal Affairs, etc.
In 2018, the development of TREMBITA involved:
• development of the interoperability system;
• deployment and installation of system elements in fully operational, testing and training environments;
• development of a package of documents for the system.
On 10 September 2018, TREMBITA was launched in testing mode and by the end of the year received the expert conclusion of the State Special Communication Service on conformity with technical data protection requirements.
Also, the E-Governance Agency together with the Verkhovna Rada Committee on Informatization and Communication prepared a draft law aimed to streamline the work with public registries in Ukraine – setting-up, functioning and upgrading. Since for some registries their establishment and functioning are regulated by the law, gaining access to them requires respective legislative amendments. So far, the draft is pending its turn to be presented for discussion by parliamentarians (Draft Law #8602 on Public Electronic Registries).
For further details see: trembita.gov.ua
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CC UKRAINE HAS ONE OF THE HIGHEST RATES OF OPENING DATA IN THE WORLD
For four years Ukraine has been actively developing its open data sphere, and each year its importance and popularity is growing. In 2018, Ukraine was ranked the second among the countries demonstrating the biggest progress in publication and use of open data for accountability, innovation and social impact. It was recognized in the Open Data Barometer Report.
Also, Ukraine was ranked the 17th among 30 signatory states of the International Open Data Charter which Ukraine joined in 2016.
Among countries Among 30 leading that achieved countries for open data the biggest progress that joined the in opening data International Open in the last 4 years Data Charter
Since 2018 was so rich in events in this area, this year could be called the Year of Open Data. Ukrainians received access to some of the most anticipated data sets, from transport sector to local budgets.
Thus, information held by the Ministry of Internal Affairs about registered vehicles were among the most popular, since they show the actual situation in the Ukrainian automobile market. This data fed into online services that have already been used by citizens more than a million times.
Special attention should be given to data on licenses for automobile transportation, both passenger and freight, that also became accessible for general public last year. Now anyone can check license of an operator and make informed decisions about potential cooperation.
In the area of environmental protection, the biggest impact was from opening the data of monitoring of surface waters by State Agency on Water Resources. The data was published by 16 main indicators from 445 points of collection of water samples on rivers for the last 5 years. According to the latest issue of Global Open Data Index, this data is published only by 15 countries in the world, and now Ukraine is one of them.
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REFORM AREA 5. ADMINISTRATIVE SERVICES DELIVERY AND ADMINISTRATIVE PROCEDURE
EXAMPLES OF PRIORITIZED DATA SETS PUBLISHED DURING 2018
Information on registered vehicles from Ministry of Internal Affairs
Data on 42,794 licenses for passenger and freight transportation issued by State Service on Transport Safety
Data on surface water from State Agency on Water Resources
Information on 9,683 local budgets from Ministry of Finance published on openbudget.gov.ua
Data on over 143,000 business inspections from oversight authorities
The Ministry of Finance initiated publication of data on 9,683 local budgets on openbudget.gov.ua. Thus, Ukrainians can now control budget spending on the level of region and village.
Public control and oversight authorities opened data on over 143 audits of businesses planned in 2019. Thus, each business owner can find out when specific audit shall take place.
The oversight authorities opened data on over 143 inspections of businesses planned to be carried out in 2019. Thus, each business owner can find out when specific inspection shall take place.
Seeking to improve quality and respectively expand the circle of open data users, the E-Governance Agency upgraded the national data portal data.gov.ua intended as a single platform for all open data sets in Ukraine. The old version gave the initial impetus to the development of open data in Ukraine but was not meeting diverse needs of users and data holders. The upgraded portal switched to CKAN platform which is the most popular among governments throughout the world. This solution is more popular and has more advanced functionality, and thus will better serve the needs of Ukraine in the long run.
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REFORM AREA 5. ADMINISTRATIVE SERVICES DELIVERY AND ADMINISTRATIVE PROCEDURE
The upgraded portal data.gov.ua offers a range of advantages both for users and data holders, making open data more accessible for the public and business community, namely:
• user-friendly navigation and search to work with open data;
• implemented analytical module for work with open data modelled on international experience;
• pre-moderation of open data sets published by data holders ensuring quality of data for further re-use;
• common standards for all users of the single information space regarding posting of information;
• effective two-way communication through feedback channels.
Publication of information by public authorities in the form of open data not only contributes to better transparency of their actions and decisions, but also has noticeable impact on the development of economy. This has been shown by the results of a joint study on such impact conducted by the E-Governance Agency, Kyiv School of Economics and the Open Data Institute based in London using the European Commission methodology.
It was found out that only in 2017 open data brought our country over $700 million or 0.67% GDP, of which $200 million were direct impact and $500 million – indirect impact. Researchers argue that if the drive for more open data continues to gain steam in Ukraine, by 2025 the figure could reach $1.14 billion or 0.92% GDP.
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CHALLENGES ENCOUNTERED DURING IMPLEMENTATION OF THIS REFORM AREA IN 2018
In this reform area, the biggest challenge is to have the Verkhovna Rada adopt the Law on Administrative Procedure introduced by the Cabinet of Ministers at the end of 2018. The drafting process took longer than anticipated as it was necessary to take into consideration views and opinions of a wide range of stakeholders and international experts. Facilitation of passing of the law in the Verkhovna Rada is among priority tasks of the PAR Strategy for 2019.
There is also a delay with drafting and adoption of laws addressing empowering of local self-governments to deliver via one-stop-shops services related to issuance of civil registration documents, land plot registration, vehicle registration and issuance of driver's license. The draft law on civil registration has been submitted to the Verkhovna Rada, whereas drafts on land plot registration, vehicle registration and issuance of driver's license are still undergoing reconciliation procedure.
Other challenges will include full-scale roll-out of TREMBITA, connection of electronic registries, further reengineering and simplification of administrative services around life events and business situations, in particular those related to birth of a child.
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OBJECTIVE ACTIVITY PERFORMANCE RESPONSIBLE TIMELINES IMPLEMENTATION INDICATOR BODY STATUS
1. Carry out thorough 1) Design together with Methodology designed Minister of CMU III Quarter 2018 Completed assessment of state SIGMA a methodology NACS The methodology was applied to of play in public for assessment of public SCMU conduct assessment of Ukrainian public administration (with administration system administration system. participation of SIGMA) 2) Conduct thorough Analytical report -”- IV Quarter 2018 Completed assessment of the public (assessment results) SIGMA Report on results of the administration system submitted for assessment of sate of play in the against the Principles of consideration of PAR Ukrainian public administration system Public Administration Coordinating Council was presented at a conference in Kyiv developed by SIGMA on 11 September. (hereinafter – Principles of On 8 October 2018, results of SIGMA Public Administration) assessment of Ukraine’s public administration against the Principles of Public Administration were reviewed by the PAR Coordinating Council.
3) Prepare, agree and Proposals for amendments Minister of CMU IV Quarter 2018 Completed approve proposals for to the PAR Strategy NACS Proposals for amendments to the amendments to the PAR approved by PAR MoF PAR Strategy considered by the PAR Strategy and Action Plan for Coordinating Council MEDT Coordinating Council on 13 December its implementation according SCMU 2018. to recommendations of the analytical report
4) Develop and submit to Amendments to the PAR Minister of CMU I Quarter 2019 Completed CMU a draft act of the Strategy and Action Plan NACS The Ministry of Justice, by letter Cabinet amending the PAR adopted by CMU MoF 50297/0/1-18 of 17 December 2018, Strategy and Action Plan for MEDT submitted to CMU the draft ordinance its implementation SCMU amending the CMU Ordinances of 24 June 2016 No. 474. and of 27 December 2017 No. 1013 that was adopted by CMU on 18 December 2018.
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2. Coordination of Ensure regular meetings of Meetings are held on a Minister of CMU On ongoing basis Completed in the reporting period the PAR Strategy PAR Coordinating Council regular basis CEBs Meetings of PAR Coordinating Council implementation SCMU were held on 23 April, 18 June, 25 July, 8 October and 13 December. The working group composed of State Secretaries also meets on a regular basis.
3. Strengthen 1) Develop methodology and Methodology and IT tools Minister of CMU IV Quarter 2017 Completed capacities for PAR IT toolkit for monitoring, developed NACS Methodology and technology for evaluation and reporting on MoRD monitoring of PARS implementation PARS implementation E-Gov Agency are designed based on Microsoft Share SCMU Point.
2) Implement methodology Methodology and IT tools -”- -”- Completed and IT toolkit necessary applied All ministries, SCMU, NACS and E-Gov for implementation, Agency are connected to the electronic monitoring and reporting system of monitoring of PARS on PARS implementation implementation based on Microsoft in the work of government Share Point. agencies involved in PARS implementation
3) Ensure production of Reports on PARS Minister of CMU Annually, starting Completed in the reporting period periodic annual reports on implementation prepared CEBs from I Quarter Report on PARS implementation status PARS implementation and and reviewed by PAR SCMU 2018 for 2017 is published on the official assessment of resources Coordinating Council website of CMU in April 2018. Report (spent and planned) for 2019 is planned to be reviewed early in 2019.
4. Establish a 1) Design and approve Professional requirements Minister of CMU IV Quarter 2017 Completed structural unit within requirements for approved SCMU According to the approved SCMU responsible for professional competencies NACS requirements, competition was PAR, with sufficient of staff of PAR unit within announced in October 2017 to fill in capacities SCMU vacancies in the Directorate for Public Administration.
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OBJECTIVE ACTIVITY PERFORMANCE RESPONSIBLE TIMELINES IMPLEMENTATION INDICATOR BODY STATUS
2) Conduct competitive Staff appointed -”- IV Quarter 2017 – I Completed recruitment for positions Quarter 2018 According to the approved according to professional requirements, competitions were competencies requirements conducted to fill in vacancies in the for civil service positions in Directorate for Public Administration. PAR unit within SCMU 21 persons were appointed, with the staffing plan of 35 employees.
5. Maintain financial 1) Prepare estimates for Annual planned MoF Annually in III Completed in the reporting period sustainability of annual planned expenditures expenditures for PARS other CEBs Quarter The 2018 State Budget of Ukraine PARS for PARS implementation implementation included SCMU stipulates financing of the programme in the State Budget of “Support to implementation of the Ukraine for relevant year comprehensive public administration reform” in the amount of 1,630.7 thousand UAH.
2) Review the adopted Information on availability MoF Annually in I Completed in the reporting period State Budget of Ukraine for and allocation of funds other CEBs Quarter The 2019 State Budget of Ukraine availability of funds planned for PARS implementation SCMU stipulates financing of the programme for PARS implementation in the State Budget of “Support to implementation of the Ukraine for relevant comprehensive public administration year reviewed by PAR reform” in the amount of 1,230,698.4 Coordinating Council thousand UAH, including 820,244.6 thousand UAH for salaries.
6. Communication 1) Design a plan for Plan approved by PAR Minister of CMU I Quarter 2018 Completed support to PAR communication support to Coordinating Council Ministry of On 8 October 2018, PAR Coordinating PAR Information Policy Council approved the Concept for PAR SCMU communication strategy.
2) Implement the plan for Communication campaign -”- On ongoing basis Completed communication support to carried out Communication campaign has been PAR rolled out on TV, radio and in the Internet.
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3) Conduct periodic Report reviewed by PAR -”- From 2018 on – on In progress monitoring of effectiveness Coordinating Council quarterly basis of communication support to PAR
7. Strengthen 1) Develop and submit to Draft law approved by Minister of CMU IV Quarter 2017 In progress strategic capacity of CMU a draft law on transfer CMU MEDT The following draft laws have been CMU of CMU’s non-essential MoJ developed and submitted to CMU: “On powers to ministries and MoF Amending the Tax Code of Ukraine other central executive other CEBs concerning transfer of non-essential bodies SCMU tasks from the Cabinet of Ministers of Ukraine”, “On Amending the Budget Code of Ukraine concerning transfer of non-essential tasks from the Cabinet of Ministers of Ukraine” and “On Amending some legislative acts of Ukraine concerning transfer of non-essential tasks from the Cabinet of Ministers of Ukraine”. These draft laws have been presented to the Government for consideration.
2) Facilitate passing of the The law adopted Minister of CMU I-II Quarters 2018 draft law on transfer of MEDT CMU’s non-essential powers MoJ to ministries and other CEBs MoF by Verkhovna Rada other CEBs SCMU
8. Improve the 1) Develop and submit to Legal act of CMU adopted Minister of CMU IV Quarter 2017 In progress system of strategic CMU a draft legal act on MEDT An inter-agency working group is set planning, monitoring amendments to the CMU MoJ up to elaborate changes to the Rules of and evaluation Rules of Procedure on MoF Procedure. The draft is planned to be policy alignment, strategic SCMU fully finalized in spring 2019. planning and securing On 1 July 2018, amendments to the agreement on draft acts of Rules of Procedure came into force CMU mandating assessment of impact on stakeholders.
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2) Deliver training to staff Training delivered -”- IV Quarter 2017 – In progress of CEBs as regards new II Quarter 2018 Training was delivered on impact procedures of CMU work assessment methodology for about 150 civil servants. In addition, 122 reform staff received training on general principles of policy-making.
9. Develop a system 1) Design a methodology Methodology and Minister of CMU IV Quarter 2017 In progress of strategic planning, for development of document templates MEDT The draft methodological guideline monitoring and strategic planning MoJ has been sent to CEBs for suggestions evaluation documents, monitoring SCMU (letter No. 19135/0/2-18 of 12.10.2018). their implementation SCMU is finalizing development of and conducting impact strategic planning guidelines and assessment based on the policy-making tools. analysis of stay of play in the ministries’ areas
of responsibility; design
templates of standard
documents
2) Deliver training to Training delivered Minister of CMU IV Quarter 2017 - II civil servants within NACS Quarter 2018
ministries on application of MEDT
methodology for designing MoJ
strategic documents and SCMU
methodology for strategy
implementation monitoring
and impact assessment
10. Improve policy 1) Conduct analysis of Relevant proposals Minister of CMU IV Quarter 2017 In progress development the existing practice developed MEDT methodology, of development of MoJ including assessment programmatic and strategic MoF of quality of documents of public policy SCMU regulation drafting
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and preparing proposals on creating a system of programmatic documents based on international best practices
2) Develop a methodology Methodology and -”- IV Quarter 2017 - I In progress and templates for templates for standard Quarter 2018 The draft methodological guideline has programmatic and strategic documents designed been sent to CEBs for suggestions and documents of public comments (letter No. 19135/0/2-18 of policy, identifying their 12.10.2018). distinctive features and purpose within the public policy development, implementation and monitoring
3) Deliver training to Training delivered -”- IV Quarter 2017 - II civil servants within Quarter 2018 ministries on application of a methodology for programmatic and strategic documents of public policy
11. Implement 1) Conduct the analysis Analytical report prepared Minister of CMU IV Quarter 2017 Completed electronic document of current status of E-Gov Agency E-Gov Agency prepared an Analytical management system implementation of other CEBs Report on the status of implementation electronic document flow SCMU of electronic document flow in the in the system of CEBs, system of CEBs (No. 51773/0/1-17 of including legal framework 22.12.2017).
2) Prepare and approve Plan approved -”- -”- Completed a project plan for Ordinance “On transfer of some budget implementation of allocations stipulated for the State electronic document flow in E-Governance Agency in 2017” was the system of CEBs approved on 12.07.2017 No. 462-r. Based on the allocated resources, the E-Governance Agency developed a
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project plan for implementation of electronic document flow in the system of pilot CEBs participating in the comprehensive public administration reform.
3) Develop legal acts Legal acts developed Minister of CMU -”- Completed regulating electronic system E-Gov Agency CMU adopted Resolution of 18.08.2017 of document flow SCMU No. 608 “Some issues concerning other CEBs preparation of draft legislative acts in electronic form”.
4) Implement a system of All CEBs integrated into Minister of CMU IV Quarter 2018 Completed automated interagency the system of electronic E-Gov Agency All CEBs work in the system of electronic document flow in interaction of government other CEBs electronic document flow. CEBs agencies SCMU
5) Implement a system of All local executive -”- IV Quarter 2020 In progress automated inter-agency agencies integrated into All city councils in cities of regional electronic document flow in the system of electronic significance, 336 district state local executive agencies interaction of government administrations, 8 cities of regional agencies significance and 12 amalgamated communities are connected to the system of electronic interaction. Currently new users are in the process of integration: district state administrations and territorial communities.
6) Evaluate effectiveness Evaluation conducted -”- I Quarter 2020 In progress of implementation of Data on the effectiveness of inter- the electronic system for agency electronic document flow and automated interagency their preliminary analysis are carried electronic document flow out in the course of implementation of
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projects on introduction of electronic document flow in CEBs, development of the system of electronic interaction of government agencies, modernization of legal framework underlying the automated inter-agency electronic document flow.
12. Adopt secondary 1) Develop and agree with Methodology agreed NACS I Quarter 2018 Completed legislation and SIGMA a methodology to MoF Methodology designed and agreed with effectively evaluate effectiveness of MEDT SIGMA. implement the Civil implementation of the Civil Ministry of Social Service Law Service Law Policy
2) SIGMA to carry out Evaluation report NACS I Quarter 2018 Completed evaluation of successfulness prepared SCMU NACS was involved in the work of implementation of the of SIGMA mission. Report on Civil Service Law successfulness of implementation of the Civil Service Law is part of SIGMA Report (Chapter III) presented on 11 September 2018.
13. Establish a 1) Define special professional NACS IV Quarter 2017 Completed highly qualified and requirements and Legal acts adopted SCMU NACS ensured the development and competent group competency levels for MoF adoption of the following legal acts: of civil servants reform staff - Recommended pool of HRM experts occupying civil (NACS Order of 4 September 2017 No. service positions that 182 (amended)); have responsibilities - Standard items checking professional for implementation knowledge (NACS Order of 19 of key national September 2017 No. 189); reforms and are - Approved list of items checking entitled to a special competencies (NACS Order of 30 salary arrangement October 2017 No. 221). within the general salary system (hereinafter – reform staff)
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2) Conduct competitions for Reform staff appointed NACS On ongoing basis In progress reform staff positions in line other CEBs – starting from IV Competitions are underway. 532 with the Civil Service Law SCMU Quarter 2017 reform staff members have been appointed through competitions as of 31 December 2018. 18,703 citizens participated in RSP competitions, submitting about 30,000 applications. The competition was on average 25 candidates per position.
3) Design a professional Plan approved -”- I Quarter 2018 Completed development plan for Professional development plan for reform staff reform staff is designed following the assignment of Prime Minister of 24 November 2017 No. 46223/1/1-17. With the endorsement of NACS Head, Director of the All-Ukrainian Centre for In-Service Training approved the Training Programme for In-Service Training of Reform Staff on 16 November 2017 (Modules 1 and 2).
14. Carry out 1) Develop proposals for Proposals regarding Ministry of Social IV Quarter 2017 In progress civil servants’ a comprehensive salary civil servants’ salaries Policy To increase civil servants’ salaries salary reform to scheme for civil servants developed MoF while ensuring sustainability of public increase salaries based on job classification NACS finance, Ministry of Social Policy while ensuring and compliant with SCMU designed a draft law amending the Law sustainability of the Principles of Public on Civil Service. The draft has been public finance Administration; calculate sent to stakeholder institutions for costs for civil servants’ agreement: to MoF, MEDT, NACS (letter salary reform of 07.08.2018 No. 15371/0/2-18/52), the joint representative body of employers, the joint representative body of trade unions (letter of 07.08.2018
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No. 15372/0/2-18/52); Confederation of Employers of Ukraine (letter of 07.08.2018 No. 15374/0/2-18/52).
2) Present proposals Proposals regarding civil Ministry of Social I Quarter 2018 regarding civil servants’ servants’ salaries approved Policy salaries to PAR Coordinating MoF Council for review NACS SCMU
3) Adopt relevant legal acts Legal acts adopted -”- II Quarter 2018 for civil servants’ salary reform
15. Define optimal 1) Design and approve Methodology approved NACS IV Quarter 2017 Completed headcount of civil a methodology for MoF NACS Order of 21 October 2016 No. servants with transparent and prompt Ministry of Social 223 approved the form for headcount regard to functions monitoring of headcount Policy reporting (quarterly) “Civil Servants’ and organizational and staff costs in public SCMU Headcount Report” and guidelines structure of public administration on its completion (registered with administration the Ministry of Justice on 14.11.2016, bodies, carry out No. 1477/29607). In order to define rightsizing of public the optimal headcount of civil administration servants with regard to functions and
organizational structure of public
administration bodies, carry out
rightsizing of public administration, in 2016 NACS launched test-mode operation of automated headcount of civil servants via ksds.nads.gov.ua. Actual headcount of civil servants is carried out by NACS on a quarterly basis (through headcount system).
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2) Determine the actual Analytical report -”- -”- Completed headcount of public published The number of employees in public administration employees administration is determined and according to the approved published in the NACS Report for 2017. methodology and publish reports on the Unified Portal of Executive Bodies
3) Design and approve a Plan approved -”- II Quarter 2018 plan of rightsizing in public administration, considering target headcount indicators for 2018-2020
4) Implement modern IT A registry of public NACS III Quarter 2018 In progress tools in the work of public administration employees MoF The World Bank agreed Technical administration to enable (with information about Ministry of Social Specifications and announcement prompt monitoring of salaries) created Policy for software procurement. Software headcount and staff costs in SCMU procurement tender is announced. It public administration is planned that in December 2018 a contract with the winning bidder will be signed.
5) Implement the plan Number of public NACS IV Quarter 2020 of rightsizing in public administration employees MoF administration, considering reduced Ministry of Social target headcount indicators Policy for 2018-2020 SCMU other central government
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16. Establish HRM 1) Adopt updated secondary Legal acts approved NACS IV Quarter 2017 Completed units in ministries and legislation defining the role, SCMU Typical Regulation on HRM Unit was other CEBs functions and structure of approved by NACS Order of 03.03.2016 HRM units in CEBs No. 47 (Registered with the Ministry of Justice on 23.03.2016 No. 438/28568). Regulation on Civil Service HRM Council under NACS was approved on 15 February 2018 No. 47.
2) Define professional -”- -”- -”- Completed requirements and level Professional requirements and level of of competency for civil competency for civil servants in HRM servants in HRM units in units in CEBs are defined by the Law on CEBs Civil Service and Typical Regulation on HRM Unit approved by NACS Order of 03.03.2016 No. 47.
3) Carry out competitive Staff appointed NACS I-II Quarters 2018 Completed in the reporting period recruitment for vacant other CEBs Recruitment to vacant positions in HRM positions in HRM units in SCMU units in CEBs is underway. Vacancies CEBs are being filled.
4) Develop a programme Programme developed and -”- On ongoing basis Completed in the reporting period and deliver training to HRM training delivered – starting from II Training of HRM staff on staff on implementation of Quarter 2018 implementation of the civil service the civil service legislation legislation and introduction of common and introduction of HRM standards and methodology in common HRM standards and public administration was delivered. methodology in CEBs In 2016-2017, with support from the German International Cooperation Agency (GIZ) within the project “Reform Advisory Fund”, workshops were delivered for State Secretaries in ministries and heads of HRM units in ministries, other CEBs and public administration bodies dedicated to the topic of HRM in Ukraine. On 12 May 2017, the All-Ukrainian
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Centre for In-Service Training hosted a cluster workshop “Development of Effective Selection Skills – Addressing Competencies”, with participation of representatives of HR Policy Department, EUAM “Advising for Trust”. A Workshop “Building Professional, Sustainable and Politically Impartial Civil Service – The Role of Transformational Leadership and Organizational Culture” was held on 1-2 June 2017 as part of the PAR Panel within the Eastern Partnership Platform on Democracy, Good Governance and Stability.
5) Establish and ensure Civil Service HRM Council NACS IV Quarter 2017 Completed activity of the Civil Service established other CEBs Civil Service HRM Council established HRM Council under NACS (NACS Order of 7 December 2017 No. composed of heads of HRM 248) to include heads of HRM units in units in CEBs CEBs. Regulation on Civil Service HRM Council under NACS was approved on 15 February 2018 No. 47.
17. Establish 1) Select a technical solution Contract for NACS -”- In progress an integrated and conduct a tender to implementation of an IT E-Gov Agency The World Bank agreed Technical information IT-based procure goods, works and system signed MoF Specifications and announcement system for HRM in services required to build SCMU for software procurement. Software civil service and operationalize an procurement tender is announced. It integrated information is planned that in December 2018 a IT-based system for HRM in contract with the winning bidder will civil service be signed.
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2) Put into operation an The system operational at NACS I Quarter 2018 In progress integrated information NACS E-Gov Agency The World Bank agreed Technical IT-based system for HRM in MoF Specifications and announcement civil service at NACS, with SCMU for software procurement. Software phased implementation of procurement tender is announced. It corresponding modules is planned that in December 2018 a contract with the winning bidder will be signed.
3) Connect ministries to the The system operational in NACS II Quarter 2018 IT-based system for HRM in ministries MoRD civil service other ministries E-Gov Agency SCMU
4) Connect CEBs (other than The system operational in NACS IV Quarter 2019 ministries) to the IT-based CEBs MoRD system for HRM in civil E-Gov Agency service other CEBs SCMU
18. Reform 1) Develop and submit Legal act of CMU adopted NACS IV Quarter 2017 Completed the system of to CMU a draft legal act SCMU NACS designed a concept for reforming professional training approving a concept for the system of professional training for of reforming the system of civil servants, heads and deputy heads civil servants’ professional of local state administrations, local self- training government officials and members of local councils, approved by Ordinance of CMU of 1 December 2017 No. 974.
2) Develop and approve a Methodology for designing -”- -”- Completed methodology for designing an individual programme Individual programme on enhancement a generic individual on enhancement of professional competency of civil programme on enhancement of professional servant is approved by Resolution of of professional competency competency of civil CMU of 18 August 2017 No. 640. of civil servant servant, template for an Methodology for designing an individual programme individual programme on enhancement on enhancement of of professional competency of civil
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professional competency servant is approved by NACS Order of of civil servant 30 March 2018 No. 74.
3) Develop standards for Common standards for -”- -”- Completed in-service training of civil in-service training of Procedure regulating organization of servants and local self- civil servants and local in-service training of civil servants government officials self-government officials and local self-government officials designed in education institutions contracted by NACS is designed and approved by NACS of 19 April 2017 No. 86 (registered with the Ministry of Justice on 10 July 2017 No. 832/30700).
19. Increase 1) Define professional Requirements approved NACS IV Quarter 2017 р. Completed institutional requirements, level of SCMU Procedure for definition of special capacity of NACS competencies and special MoF requirements for candidates to civil to ensure effective requirements for civil service positions in categories B and C is implementation of servants in the updated approved by NACS Order of 06.04.2016 the Civil Service organizational structure of No. 72 (registered with the Ministry of Law and civil service NACS Justice on 27.04.2016 No. 647/28777). reform 2) Define reform staff RSP positions defined -”- -”- Completed positions within NACS In line with the RSP Concept (Ordinance structure of CMU of 18 August 2017 No. 580), NACS introduced reform staff positions, specifically General Department for HRM in Civil Service is established.
3) Carry out competitive Staff appointed to -”- IV Quarter 2017 - I Completed recruitment for vacant civil positions Quarter 2018 Competitive recruitment has been service positions within conducted for vacant civil service NACS, including RSP positions within NACS, including RSP. Staff members have been appointed.
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4) Deliver training to NACS Training delivered NACS I-II Quarter 2018 Completed staff on modern tools of SCMU 15 seminars, conferences and HRM in civil service MoF workshops have been conducted for HRM staff of public administration bodies and NACS staff dedicated to implementation of civil service legislation and modern HRM tool, including monitoring and evaluation. On 12 April 2018, training of chief specialists of NACS territorial bodies was conducted as part of the seminar “Practical application of the Law on Civil Service and other legal acts related to civil service”. On 19-20 June 2018, General Department of NACS, in collaboration with the All-Ukrainian Centre for In-Service Training, Kyiv School of Economics and Universal Examination Network, conducted in-service training for staff of General Department of NACS “Development of Test Items on Special Legislation and Answer Options”.
20. Define 1) Design a draft legal act Legal acts of CMU NACS IV Quarter 2017 Completed mission, areas of defining requirements for adopted SCMU CMU approved the Concept for responsibility, establishment of structure MoJ optimization of central government by functions and of the apparatus in ministry MoF Ordinance of 27.12.2017 No. 1013. tasks of ministries and approve standard and other CEBs, regulations on structural including SCMU. units in ministries created to Remove duplication ensure policy development of mandates and in ministries’ areas of functions responsibility
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2) Develop (update) Methodological guides Minister of CMU IV Quarter 2017 Completed methodological guides developed NACS Methodological guides have been for conducting functional other CEBs reviewed and approved by the PAR reviews, defining mission SCMU Coordinating Council. and areas of responsibility in CEBs
3) Carry out functional Functional review reports Minister of CMU IV Quarter 2017 - II reviews in ministries prepared ministries Quarter 2018 SCMU
4) Update regulations on Regulations and structures -”- III-IV Quarters 2018 ministries and structures of of ministries approved ministries’ apparatus on the basis of functional review results
5) Carry out functional Functional review reports Minister of CMU I-IV Quarters 2019 reviews of the system of prepared CEBs CEBs (other than ministries) SCMU
6) Update regulations on Regulations and structures Minister of CMU I-II Quarters 2020 CEBs (other than ministries) of CEBs approved CEBs and structures of their SCMU apparatus on the basis of functional review results
7) Carry out analysis of key Analytical report and Minister of CMU IV Quarter 2018 business processes in CEBs proposals based on results SCMU (preparation, agreement of analysis of key work NACS and adoption of decisions, processes prepared other CEBs organization of work with applications from citizens and businesses, organization of work and control of
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assignment implementation, etc.)
8) Develop recommendations Relevant -”- I Quarter 2019 derived from the analysis of recommendations business processes prepared
21. Establish clear 1) Carry out analysis of the Analytical report prepared Minister of CMU IV Quarter 2019 lines for steering system of CEBs and their SCMU areas of responsibility and coordination NACS
of activity of CEBs MoJ
by CMU through MoF
corresponding 2) Develop proposals on Proposals on the new -”- I Quarter 2020 ministers building an effective system system of CEBs designed
of CEBs with clear lines of
steering and coordination
of activity of CEBs by CMU
through corresponding ministers
3) Develop and submit to Legal acts adopted Minister of CMU I-II Quarters 2020 CMU draft legal acts on SCMU updated system of CEBs NACS MoJ MoF
22. Systematize 1) Develop and submit Draft law approved by MoJ IV Quarter 2018 In progress rules of general to CMU a draft law on CMU and submitted to MoF The working group task with administrative administrative procedure Verkhovna Rada MEDT drafting of the law on administrative procedure with other CEBs procedure has conducted 23 meetings. safeguards in Following SIGMA comments and line with Public recommendations (in early October Administration 2018), the draft is being finalized and Principles agreed with key stakeholders.
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2) Facilitate passing of the Law adopted MoJ draft law on administrative SCMU procedure by Verkhovna Rada
3) Carry out awareness Awareness building MoJ II-IV Quarters 2019 building and training of civil and training activities NACS servants and local self- implemented MoF government officials on MEDT implementation of the Law other CEBs on Administrative Procedure
4) Develop draft laws Draft laws approved by Ministries, other CEBs II Quarter 2020 amending sectoral legislation CMU and submitted to that regulates administrative Verkhovna Rada procedures according to the general principles of the Law on Administrative Procedure; agree the draft laws with stakeholders
5) Facilitate passing of Laws adopted Ministries III Quarter 2020 draft laws amending laws of Ukraine that regulates administrative procedures in order to align them with the Law on Administrative Procedure by Verkhovna Rada
6) Develop and submit to Draft laws approved by MEDT -”- CMU draft laws on aligning CMU and submitted to other CEBs the permissions and licensure Verkhovna Rada legislation with the Law on Administrative Procedure
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7) Facilitate review of Laws adopted -”- -”- draft laws on aligning the permissions and licensure legislation with the Law on Administrative Procedure by Verkhovna Rada
8) Develop and submit Secondary legislation MEDT IV Quarter 2020 to CMU draft secondary adopted other CEBs legislation aimed to facilitate implementation of the permissions and licensure legislation according to the Law on Administrative Procedure
23. Ensure 1) Design and implement System for evaluation of MEDT IV Quarter 2017 Completed accessibility of a system to evaluate administrative services local state MEDT conducts ongoing monitoring administrative performance of centres performance and administrations of performance of administrative services administrative services monitoring of service local self-governments services centres created according to centres and monitor users’ satisfaction (by agreement) the Law on Administrative Services by satisfaction of service users’ implemented collecting relevant information from needs local governments and district state administrations through regional state administrations. Detailed information about administrative services centres is provided on MEDT website under the heading “Activity” (sub-heading “Administrative Services”). There is continuous evaluation of quality of services provided to users, including e-services.
2) Evaluate administrative Analytical report and -”- Annually in IV In progress services centres’ proposals based on Quarter In partnership with the GIZ Project performance and develop evaluation prepared “Reform of Municipal Services in proposals to increase their Eastern Ukraine II”, an IT-based efficiency
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monitoring system has been designed and is being piloted by administrative services centres. Also, as reported by regional state administrations, administrative services centres continuously evaluate quality of
services provided to users, including
e-services.
3) Bring performance of Report on activity MEDT -”- In progress
administrative services prepared MoRD This work is being carried out as
centres up to legally local state part of monitoring of administrative
established requirements administrations services centres’ performance. Detailed
with regard of proposals local self-governments information about administrative
based on evaluation of their (by agreement) services centres established according
performance to the Law is provided on the MEDT website under the heading “Activity” (sub-heading “Administrative Services”).
4) Develop and submit to Draft law approved by CMU a draft law devolving CMU and submitted to powers on administrative Verkhovna Rada service delivery to local self-governments for these services to be delivered through administrative services centres concerning issuance of the following documents:
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land registration; State Geo-Cadastre I Quarter 2018 Completed The State Geo-Cadastre elaborated the draft Law of Ukraine “On amending the Law of Ukraine “On State Land Cadastre” (to extend the list of persons authorized to make entries to and provide information from the State Land Cadastre)” (registration number 8049 of 22.02.2018). The draft law proposes to delegate performance of land registration to certified land management engineers. It is also envisaged that that entry of information to the State Land Cadastre will be based on the principle of extraterritoriality. MEDT is of the opinion that the proposed draft law does not resolve the transfer of respective services to local self-governments.
vehicle registration and Ministry of Internal -”- In progress issuance of driver’s license Affairs Ministry of Internal Affairs has elaborated the draft Law of Ukraine “On amending some laws of Ukraine (concerning implementation of legislation and defining a list of services provided by territorial bodies of the Ministry of Internal Affairs)” that stipulates amendments in the Law of Ukraine “On Road Traffic” that would authorize administrative services centres to receive applications for exchange of driver’s license in cases defined by legislation, registration of new vehicles and re-registration of vehicles in cases defined by legislation (e.g. inadequate condition of such
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OBJECTIVE ACTIVITY PERFORMANCE RESPONSIBLE TIMELINES IMPLEMENTATION INDICATOR BODY STATUS
documents or change of holder’s name). MEDT is of the opinion that the proposed draft law does not resolve the transfer of respective services to local self-governments.
5) Facilitate passing by The Law adopted Verkhovna Rada of a draft law devolving powers on administrative service delivery to local self- governments for these services to be delivered through administrative services centres concerning issuance of the following documents:
civil registration; MoJ IV Quarter 2017 In progress Ministry of Justice has elaborated the draft Law of Ukraine “On amending the Law of Ukraine “On state registration of civil acts” and some other legislative acts of Ukraine (concerning decentralization and bringing civil registration services closer to citizens)” that has been introduced to the Verkhovna Rada for deliberations (registration number 6150 of 28.02.2017). Currently, having been reviewed by parliamentary committees, the draft law is pending its first reading. The draft law proposes to extent the authority of executive bodies of rural
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and city councils concerning delivery of administrative services in the area of civil registration. It is also envisaged to define the list of administrative services in the respective area and set administrative fees, introduce the principle of extraterritoriality in reception of applications, provide the possibility to submit applications electronically and shorten application review period. Thus, the draft law envisages that civil registration offices of the Ministry of Justice will be gradually withdrawing from delivery of services in this area, up to 1 January 2023. It is envisaged that territorial bodies of the Ministry of Justice shall retain their function of civil registration in cities of regional significance, preserve the archives and ensure making of relevant changes in entries, their renewal or revocation.
land registration; State Geo-Cadastre II Quarter 2018
vehicle registration and Ministry of Internal -”- issuance of driver’s license Affairs
6) Ensure connection of 80% administrative Ministry of Internal IV Quarter 2017 Completed administrative services services centres connected Affairs According to the information provided centres to state registries to registries State Migration by the Ministry of Internal Affairs, the Service State Migration Service provided access MEDT to the Unified State Demographic other CEBs, local state Registry to enable issuance of Ukrainian administrations, passport in the form of ID card and
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OBJECTIVE ACTIVITY PERFORMANCE RESPONSIBLE TIMELINES IMPLEMENTATION INDICATOR BODY STATUS
local self-governments Ukrainian passport for travel abroad to (by agreement) 113 administrative services centres and their local branches operating 239 work stations. Connection of administrative services centres to the state registries is based on their technical readiness to such interaction and is subject to agreements, according to the Law of Ukraine “On Information Protection in Information Communication Systems” and powers defined in the Law of Ukraine “On the Unified State Demographic Registry and documents certifying Ukrainian citizenship, person’s identity or special status”.
7) Revise requirements 80% of administrative MEDT -”- Completed for ensure no-barriers services centres comply local state The Government adopted Resolution of environment in with requirements administrations 31 August 2016 No. 565 and Resolutions administrative services local self-governments of 22 September 2016 No. 652 amending centres (by agreement) the Indicative Regulation and Rules for administrative services centres, specifying additional requirements for set-up and equipment of such centres, including accommodations for people with physical disabilities, and requirements for setting up administrators’ remote work stations.
8) Deliver training Training and outreach MEDT Annually – Is being implemented (workshops, round tables) delivered other CEBs, local state starting from IV Seminars and workshops on on implementation of basic administrations, Quarter 2017 administrative services delivery are administrative services local self-governments conducted regularly. Thus, in June (by agreement)
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this year, an international conference “Open Space – Innovations of Communities” was held with support of the GIZ Project “Reform of Municipal Services in Eastern Ukraine II”. Ministry of Economy and Ministry of Regional Development held conferences in 2016 and 2017, and in October 2018, with support of the GIZ Project “Reform of Municipal Services in Eastern Ukraine II”. These events were attended by representatives of administrative services centres set up by local governments, including amalgamated communities, and local state administrations, representatives of CMU, Ministry of Internal Affairs, Ministry of Social Policy, State Migration Service, E-Gov Agency, State Construction and Architecture Inspection, State Geo-Cadastre, civil society and international organizations, parliamentarians, representatives of administrations from Georgia and Armenia.
9) Promote administrative Outreach campaign MEDT On ongoing basis Promotion of administrative services services centres delivered other CEBs, local state centres is ensured through outreach administrations, campaigns carried out by: local self-governments - Ministry of Justice, State Migration (by agreement) Service, local executive bodies, local governments and NGOs – by posting in the Internet, including own websites,
and presenting in mass media (national
TV) new opportunities in terms of
receiving administrative services related
to property and business registration,
issuance of Ukrainian passport and place
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OBJECTIVE ACTIVITY PERFORMANCE RESPONSIBLE TIMELINES IMPLEMENTATION INDICATOR BODY STATUS
of residence registration; - MEDT and NGOs – by posting information in the Internet and own website about administrative services centres to be opened, including those set up in amalgamated communities. Thus, following MEDT proposal, the Ministry of Information policy invited the Ukrainian national TV channels to include in their broadcasting schemes public service advertising of administrative services centres.
24. Reduce excessive 1) In consultations with A list of 15 services MEDT IV Quarter 2017 Completed administrative the public, identify 15 identified MoF MEDT together with the Office of burden most frequently claimed MoRD administrative services reform under administrative services MoJ MEDT (supported by EDGE), with for optimization of their NGOs (by agreement) involvement of NGOs, identified 15 delivery procedure administrative services for optimization of their delivery procedures. 2) Establish a working group on optimization of WG established MEDT -”- Completed delivery procedure for 15 other CEBs, local state A working group on optimization of most frequently claimed administrations, procedures for administrative services administrative services local self-governments delivery is established. (hereinafter – WG) (by agreement)
3) Identify and describe Analytical report prepared MEDT I Quarter 2018 Completed stages of implementation of other CEBs On the basis of analysis of procedures 15 most frequently claimed NGOs (by agreement) for delivery of identified administrative administrative services services, Analytical report is prepared (following the principles with definition and description of of one-stop-shop for each optimization steps and Optimization life event, data exchange in Plan containing activities for
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back-office, no applications simplification of service delivery, filled) and predict reduction performance indicators, timelines and of administrative burden responsible institutions.
4) Prepare a plan for Optimization plan and MEDT II Quarter 2018 Completed optimization of delivery proposals prepared WG (by agreement) On the basis of analysis of procedures procedure for 15 most CEBs for delivery of identified administrative frequently claimed NGOs (by agreement) services, Analytical Report is prepared administrative services with definition and description of and proposals for optimization steps and Optimization amendments to legislation, Plan containing activities for in particular, on reduction simplification of service delivery, of administrative burden on performance indicators, timelines and service users responsible institutions.
5) Implement a plan for Simplification of MEDT III Quarter 2019 optimization of delivery procedures and cost WG (by agreement) procedure for 15 most savings ensured CEBs frequently claimed administrative services (first stage, including training of civil servants)
6) Implement a plan for -”- -”- III Quarter 2020 optimization of delivery procedure for 15 most frequently claimed administrative services (second stage, including training of civil servants)
25. Implement 1) Develop, implement System for electronic E-Gov Agency IV Quarter 2020 In progress automated data and support operations of interaction of government other CEBs As part of the U-LEAD support exchange between the system for electronic IT resources fully EGOV4UKRAINE project and Swedish IT systems of interaction of government operationalized and Estonian development cooperation government IT resources programmes, procurement “Systems for agencies (electronic electronic interaction of government IT interaction) resources for the State E-Governance
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OBJECTIVE ACTIVITY PERFORMANCE RESPONSIBLE TIMELINES IMPLEMENTATION INDICATOR BODY STATUS
Agency of Ukraine” was conducted and the respective contract was signed. The contract envisages development of a system for electronic interaction of government IT resources (interoperability); deployment and installation of respective system components in operational, pilot and educational settings; and designing of corresponding documentation package. CMU approved the Procedure for organization of electronic interaction of government IT resources by Resolution of 10 May 2018 No. 357.
2) Create a comprehensive Comprehensive system of E-Gov Agency -”- system of information information security for Administration security for the system for the system for electronic of State Special electronic interaction of interaction of government Communications government IT resources IT resources created Service Ukrainian State Archive, other CEBs
3) Carry out phased All CEBs integrated into E-Gov Agency -”- connection of CEBs to the system for electronic other CEBs the system for electronic interaction of government interaction of government IT resources IT resources
26. Ensure 1) Develop and submit Legal act adopted E-Gov Agency IV Quarter 2017 Completed administrative to CMU a draft legal act MEDT The Government approved the service delivery to define a mechanism MoJ Concept for the development of in electronic form of e-identification of MoF e-governance in Ukraine (CMU according to levels citizens enabling to receive Ordinance of 20.09.2017 No. 649-r).
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of development administrative services in One of the areas in achievement of the of electronic the electronic form goal of the Concept is development of administrative e-identification and trust services. services defined on the basis of the EGDI 2) Ensure operations of Accessibility of a single MEDT IV Quarter 2018 In progress UN methodology a single platform for platform providing E-Gov Agency The Unified State Portal of administrative service information about MoF Administrative Services has been delivery on the basis of services, identification National bank (by operationalized and is under continuous the Unified State Portal of mechanisms, tools for agreement) development. Administrative Services, processing payments The following information is made including e-identification and analysis on received available on the Portal: (Bank ІD, ID Card Mobile ID), services ensured - Information about more than 1,000 payment gate, personal administrative services (legal acts user’s office, monitoring regulating service delivery, electronic satisfaction with quality application forms (doc and pdf), other of administrative service required documents, place and regime delivery in the electronic of delivery, etc.); form - 44 public authorities and over 750 administrative services centres, their location, working regime and links to websites (if available). The user can: - Create a personal account using login and password, electronic digital signature or Bank ID of the National Bank of Ukraine; - Apply for and receive electronically 99 administrative services (15 services of MEDT, 73 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, 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 Labour Service,
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OBJECTIVE ACTIVITY PERFORMANCE RESPONSIBLE TIMELINES IMPLEMENTATION INDICATOR BODY STATUS
one combined service of the National Commission for State Regulation of Financial services Market (in 11 areas and 64 sub-areas); - Make appointment via electronic queue system to receive Ukrainian passport and travel passport (10 services); - Submit reports that are required from businesses as regards district heating, district water supply and sewage to the National Commission for State Regulation of Energy and Public Utilities (43 reports); - Following links, receive 50 services in electronic form on other websites; - pay administrative fees using payment systems EasyPay, Portmone, iPay and WebMoney. CMU Resolution of 23.05.2018 No. 395 amended the Procedure regulating the Unified State Portal of Administrative Services approved by CMU Resolution of 03.01.2013 No. 13, namely: - the scope of Portal utility has been expanded to include other public services and access to respective information; - new sub-systems and modules have been added to the Portal architecture; - responsibilities of the owner and administrator of the Portal are defined; - mechanism has been clarified for service providers to join the Portal, etc.
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3) Implement electronic At least 30% of service E-Gov Agency IV Quarter 2020 In progress services users receive services MEDT E-Governance Agency together electronically other CEBs with relevant entities charged with governance introduced more than 100 e-services in the following areas: - welfare (14); - construction and real estate (10); - land and environment (20); - registration and conduct of business (27); - citizenship and migration (8); - finance and taxes (28); - transport (7); - security and justice (4). All e-services is accessible on the Government Portal kmu.gov.ua under the heading “E-Services”. Driver’s online account was launched on 21 December 2018. This online service was created in collaboration between Main Service Centre of the Ministry of Internal Affairs and the E-Governance Agency with support of the TAPAS project – Transparency and Accountability in Public Administration and Services and the Eastern Europe Fund. Driver’s online account provides access to 5 services: 1. Receiving up-to-date information on the vehicle and driver’s license; 2. Checking and paying administrative fines; 3. Checking the vehicle by VIN code; 4. Sign up for electronic queue to the service centre of the Ministry of Internal Affairs; 5. Order customized license plate.
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OBJECTIVE ACTIVITY PERFORMANCE RESPONSIBLE TIMELINES IMPLEMENTATION INDICATOR BODY STATUS
Driver’s online account is accessible at e-driver.hsc.gov.ua and the Government Portal at kmu.gov.ua under E-Services.
27. Ensure 1) Create, launch and Single State Open E-Gov Agency -”- Completed development of open maintain the Single State Data Portal fully CEBs, local state As part of the USAID international data Open Data Portal operationalized administrations technical assistance programme local self-governments “Transparency and Accountability in (by agreement) Public Administration and Services” (TAPAS), the E-Governance Agency upgraded the Single State Open Data Portal. The E-Governance Agency issued the Order of 13 September 2018 No. 62 establishing the Commission on transfer and acceptance of documentation and software of the upgraded Single State Open Data Portal that launched test-mode operations of the Portal and transferred it under administration of the state enterprise “State Centre of Information Resources of Ukraine”. The upgraded Single State Open Data Portal offers a range of advantages both for users and data holders, making open data more accessible for citizens and business, namely: - user-friendly navigation and comprehensive search enabling work with open data for data holders and users; - analytical module enabling work with open data based on international practices;
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- pre-moderation of open data sets published by information holders to ensure their quality for further re-use; - common standards for posting information by all users of the common information space; - effective two-way communication through feedback channels.
2) Publish prioritized sets of Single State Open Data -”- -”- Completed government data in the form Portal publishes at least The upgraded Single State Open Data of open data on national and 20,000 data sets Portal (data.gov.ua) has more than regional levels 48,000 data sets and more than 3,500 registered information holders.
3) Monitor publication and Monitoring report E-Gov Agency Annually in IV Completed updating of data sets on prepared other CEBs, local state Quarter Publication of prioritized data sets public authorities’ official administrations of executive bodies and local self- websites and on the Single local self-governments governments in the form of open data State Open Data Portal (by agreement) was carried out in accordance with the CMU Resolution No. 835 (amended). Monitoring report on publication and updating of data sets on public authorities’ official websites and on the Single State Open Data Portal is posted on the official website of the E-Governance Agency e.gov.ua/ua/ news/pidsumok-vikonannya-postanovi- 835-u-2018-roci and Single State Open Data Portal data.gov.ua/blog/ vykonannia-postanovy-kmu-835-v- 2018-rotsi.
Report Implementation of Ukraine’s 2016-2020 Strategy for Public Administration Reform in 2018 98
ANNEX 2 ACHIEVEMENT OF PAR STRATEGY PERFORMANCE INDICATORS* Target value Actual value Status for 2018, % as of end (implemented PERFORMANCE INDICATOR 2018, % / not implemented)
Reform area 1. PAR Strategic Framework 1. Conduct baseline assessment of 100 100 Implemented public administration and prepare assessment report
2. Revise the PAR Strategy and 100 100 Implemented Implementation Plan on the basis of baseline assessment
3. Implement a comprehensive 70 63 Partially institutional action plan implemented
4. Develop methodology and IT 70 100 Implemented tools for PAR implementation, monitoring and reporting
5. Define PAR implementation 100 100 Implemented costs in the process of drafting the State Budget of Ukraine for corresponding year
6. Implement the action plan on PAR 100 100 Implemented communication support
Reform area 2. Strategic planning, policy development and coordination
7. Share of sectoral strategies 100 0 Not adopted after 1 January 2017 implemented meeting strategic planning standards
8. Share of annual strategy 100 0 Not implementation reports meeting implemented strategic planning standards
9. Establish a unit responsible for 100 100 Implemented strategic planning and policy coordination, with sufficient capacity
*Indicators with established targets for 2018.
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ANNEX 2 ACHIEVEMENT OF PAR STRATEGY PERFORMANCE INDICATORS
10. Share of draft laws and 30 0 Not regulations submitted to the implemented Cabinet of Ministers elaborated according to the improved methodology
11. Share of central executive 100 100 Implemented bodies performing automated electronic document management (integrated to the system of e-documentation flow)
12. Share of documents exchanged 80 80 Implemented by central executive bodies electronically
13. Share of local executive bodies 60 60 Implemented performing automated inter- agency electronic document management (integrated to the system of inter-agency e-documentation flow)
Reform area 3. Civil service and human resource management
14. Ratio of supplements and bonuses 35 30 Implemented in average civil servants' pay (according to the Law on Civil Service)
15. Downsizing of central executive 5 5 Implemented bodies resultant from more effective performance (not counting employees that moved from central executive bodies to work in local self-governments and/or other public authorities) (annually at least by 2.5% of headcount as of 1 January 2016 – 250,000 persons).
16. Ensure functioning of HRMIS 30 0 Not modules for civil service implemented competitions; share of executive bodies using these modules
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ANNEX 2 ACHIEVEMENT OF PAR STRATEGY PERFORMANCE INDICATORS
Target value Actual value Status for 2018, % as of end (implemented PERFORMANCE INDICATOR 2018, % / not implemented)
17. Ensure functioning of HRMIS 30 0 Not modules for calculation and implemented payment of salaries and financial analysis; share of executive bodies using these modules
18. Ensure functioning of HRMIS 30 0 Not modules for staff management implemented processes (preparation of documents on admission to civil service, service history, career development, appraisal, competencies, training, exit from civil service); share of executive bodies using these modules
Reform area 4. Accountability – organization, transparency, oversight
19. Share of central executive bodies 0 13 Not steered and coordinated directly implemented by the Cabinet of Ministers
Reform area 5. Administrative services delivery and administrative procedure
20. Adoption and implementation of 100 50 Partially the law on general administrative implemented procedure
21. Share of one-stop-shops meeting 50 50% of one- Implemented requirements defined by the law stop-shops at district state administration with area 50 m2 and more; 63% of one- stop-shops at LSG with area 50 m2 and more;
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ANNEX 2 ACHIEVEMENT OF PAR STRATEGY PERFORMANCE INDICATORS
47% of one- stop-shops at LSG with area 70 m2 and more; 30% of one- stop-shops with area 100 m2 and more
22. Share of one-stop-shops 80 8% of one- Implemented delivering mandatory stop-shops
administrative services deliver more
than 200
services;
15% of one-
stop-shops
deliver from
150 to 200
services;
29% of one-
stop-shops
deliver from
100 to 150
services;
38% of one-
stop-shops
deliver from
50 to 100
services;
10% of one- stop-shops deliver less than 50 services
23. Share of service users satisfied 40 No money In progress with quality of administrative allocated services delivered via one-stop- for survey in shops 2018, survey planned for 2019
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ANNEX 2 ACHIEVEMENT OF PAR STRATEGY PERFORMANCE INDICATORS
Target value Actual value Status for 2018, % as of end (implemented PERFORMANCE INDICATOR 2018, % / not implemented)
24. Share of central executive bodies 50 0 Not integrated into the electronic implemented interaction system
25. Share of requests for data in 50 0 Not electronic form via the electronic implemented interaction system
26. Number of administrative services 25 74 Implemented implemented at level IV
27. Number of data sets published 7 4.5 Implemented as open data on the government open data portal, thousand units
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DATA ON RSP RECRUITMENT IN 2018 ANNEX 3
# Institution Reform staff Reform staff Reform staff Reform staff Number of directorates within institution Number of appointed as of working as of (category A) as dismissed from directorates 01.01.2018 31.12.2018 of 31.12.2018 01.01.2018 to Functional Functional according to within 31.12.2018 according to order on their launch as institution order on their of 31.12.2018 launch as of 31.12.2018
1 Ministry of Agrarian Policy 1 17 1 0 2 2 2
2 SCMU 12 76 6 3 5 5 4
3 Ministry of Energy 4 44 1 1 3 4 3
4 Ministry of Finance 1 8 1 0 1 6 1
5 Ministry of Culture 2 23 1 0 2 4** 4
6 NACS 5 16 3 3* 2 2 2
7 Ministry of Infrastructure 0 24 1 5 3 3 2
8 Ministry of Social Policy 10 109 1 3 7 7 6
9 E-Governance Agency 1 16 3 0 1 1 1
10 Ministry of Justice 15 60 1 5 2 4 3
11 Ministry of Healthcare 0 28 1 2* 2 5 4
12 Ministry of Regional Development 20 44 1 4 4 8 4
13 Ministry of Education 2 67 1 3 7 7 7
TOTAL 73 532 22 27 41 58 43
* Including 1 person transferred to a non-RSP position ** In the Ministry of Culture 3 directorates are not reflected in the staffing plan.
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ANNEX 4 IN-SERVICE TRAINING OF CIVIL SERVANTS IN 2018
Following the CMU Resolution of 11 July 2018 No. 556 concerning government commissioning of training of specialists, research and academic professionals and skilled workforce, in-service training and retraining in 2018, NACS organized and conducted competitive selection of contractors to deliver in-service training of civil servants and local government officials. 17 higher education institutions were selected as contractors to deliver in-service training for 7,850 civil servants and local government officials on anti-corruption commissioned by NACS:
• 7 higher education institutions delivered in-service training for 1,660 civil servants and local government officials by professional programmes commissioned by NACS;
• 10 higher education institutions delivered in-service training for 6,190 civil servants and local government officials by short-term programmes commissioned by NACS;
• 8 higher education institutions delivered in-service training for 1,000 civil servants and local government officials by training programmes financial management commissioned by NACS.
In-service training for civil servants commissioned by NACS in 2018 in the area of civil service was delivered by education institutions under the Ministry of Social Policy, Ministry of Justice, National Academy of Pedagogical Sciences, Ministry of Ecology, State Service on Financial Monitoring, NACS, without competition. In-service training was delivered on the following topics:
• Social policy and welfare – 900 civil servants trained at the In-Service Training Centre for staff under the Ministry of Social Policy;
• Legal issues – 1,500 civil servants working in the justice sector, legal departments of ministries and other CEBs at the Institute of Law and Post-Diploma Education under the Ministry of Justice;
• Education – 239 persons were trained within the programme for civil servants working in education departments at the Education Management University within the National Academy of Pedagogical Sciences;
• Environmental management – 340 civil servants at the State Ecological Academy for Post-Diploma Education and Management under the Ministry of Ecology;
• Prevention and combatting money laundering, terrorist financing and financing of proliferation of weapons of mass destruction – 600 civil servants working under the State Service on Financial Monitoring.
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ANNEX 4 IN-SERVICE TRAINING OF CIVIL SERVANTS IN 2018
In 2018, the National Academy of Public Administration under the President of Ukraine, operating under the State General Affairs Department, delivered in- service training for civil servants and local government officials as follows:
• 4100 persons were trained on anti-corruption;
• 4185 persons were trained from salary groups 1-5;
• 80 persons were trained on financial management.
In 2018, the All-Ukrainian In-Service Training Centre for civil servants and local government officials operating under NACS delivered in-service training as follows:
• 168 persons were trained according to programmes targeting senior civil servants;
• 697 persons were trained according to programmes targeting managers of HRM units;
• 3322 civil servants from CEBs in salary groups 6-9;
• 2697 civil servants from institutions under the State Fiscal Service;
• 1776 civil servants improved proficiency in the official language of the state;
• 185 authorized officials on anti-corruption were trained according to anti- corruption programme;
• 715 civil servants from CEBs were trained in foreign languages;
• 23 civil servants who are members of RSP selection commissions received relevant training;
• 82 civil servants were trained as part of annual national competition on Best Civil Servant;
• 300 e-governance specialists received relevant training.
Therefore, in 2018 the number of civil servants, local government officials, heads, first deputy heads and deputy heads of local state administrations who received in-service training commissioned by the government is lower (30,991 persons admitted, 30,391 persons completed) than what was commissioned by the government (31,424 persons admitted, 30,795 persons completed). This is linked with such factors as loss of civil service status or exit from civil service; non-attendance, including failure to send staff to be trained; failure to deliver on training plan.
.
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ANNEX 4 IN-SERVICE TRAINING OF CIVIL SERVANTS IN 2018
Financing of in-service training commissioned by the government in 2018
IN-SERVICE TRAINING EXPENDITURE, UAH
TOTAL 53 030 342,08
In-service training of civil servants in salary groups 1-5 4 100 000,00 and local government officials in categories I-IV, heads, first deputy heads and deputy heads of local state administrations
In-service training of civil servants on financial monitoring 2 431 200,00 in the area of money laundering and terrorist financing
In-service training of civil servants of units within local 1 690 900,00 state administrations responsible for social protection and welfare, enterprises, institutions and organizations falling under the Ministry of Social Policy
In-service training of staff in legal departments of 3 177 200,00 ministries and other CEBs
In-service training of civil servants in education 545 000,00 departments
In-service training of civil servants and local government 2 823 122,03 officials on anti-corruption
In-service training of civil servants and local government 189 100,00 officials on environmental management
In-service training of civil servants and local government 870 620,05 officials on financial management
In-service training in foreign languages for civil servants 4 339 400,00 from CEBs and other institutions
In-service training of senior civil servants 275 800,00
In-service training of civil servants and local government 1 390 700,00 officials on HRM
In-service training of civil servants in salary groups 6-9 7 553 100,00 from CEBs and other institutions
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ANNEX 4 IN-SERVICE TRAINING OF CIVIL SERVANTS IN 2018
In-service training of civil servants of authorized officials 1 355 500,00 on anti-corruption
In-service training of civil servants to improve proficiency 5 278 100,00 in the official language of the state
In-service training of reform staff 1 828 900,00
In-service training of civil servants who are members of 33 700,00 RSP selection commissions
In-service training of civil servants in State Fiscal Service 12 954 900,00
In-service training of civil servants – participants of 200 100,00 Stages II and III of the competition “Best Civil Servant”
In-service training of civil servants on ICT 1 993 000,00
Report Implementation of Ukraine’s 2016-2020 Strategy for Public Administration Reform in 2018 108
Report prepared by Directorate for Public Administration, Secretariat of the Cabinet of Ministers of Ukraine
This report was produced with the financial support of the European Union. Its contents are the sole responsibility of the Government of Ukraine and do not necessarily reflect the views of the European Union.
MOVING FORWARD TOGETHER PROJECT FUNDED BY EUROPEAN UNION
Report Implementation of Ukraine’s 2016-2020 Strategy for Public Administration Reform in 2018