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Strategic Policy Making in Central and Eastern Europe

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Strategic Policy Making in Central and Eastern Europe Strategic Policy Making in Central and Eastern Europe NISPAcee The Network of Institutes and Schools of Public Administration in Central and Eastern Europe STRATEGIC POLICY MAKING IN CENTRAL AND EASTERN EUROPE Edited by Martin Brusis, Katarina Staroňová, Radoslaw Zubek 2007 Copyright © 2007 by NISPAcee STRATEGIC POLICY MAKING IN CENTRAL AND EASTERN EUROPE Published by NISPAcee (The Network of Institutes and Schools of Public Administration in Central and Eastern Europe) Polianky 5 841 01 Bratislava 42 Slovak Republic tel/fax: +421-2-6428 5357, 6428 5557 e-mail: [email protected] http://www.nispa.sk Printed in Slovakia, 2007 ISBN 80- This publication was funded by LGI/OSI (The Local Government and Public Service Reform Initiative, Open Society Institute), Budapest, Hungary. Contents About the Authors ��������������������������������������������������������������������������������������������� 7 Introduction: The Challenge of Strategic Policy Making Martin Brusis, Katarina Staroňová, Radoslaw Zubek ����������������������������������� 9 Chapter 1 Executive Configuration and Legislative Management: Experiences from Bulgaria Mina Shoylekova �������������������������������������������������������������������������������������������� 19 Chapter 2 Institutionalising the Cabinet Government in Ukraine Oleh Protsyk �������������������������������������������������������������������������������������������������� 43 Chapter 3 Explaining Russia’s New Strategic Orientation – Presidents, Institutions and Regimes under Yeltsin and Putin Pat Gray ��������������������������������������������������������������������������������������������������������� 59 Chapter 4 In Search of Strategic Governance: Executive Reforms in Hungary László Vass ������������������������������������������������������������������������������������������������������ 73 Chapter 5 Strategic Governance and the Czech Republic: Theoretical Considerations, Real-life Performance Martin Potůček ����������������������������������������������������������������������������������������������� 99 Chapter 6 Executive leadership and policy management System: The case of Slovakia Katarína Staroňová �������������������������������������������������������������������������������������� 117 Chapter 7 Measuring the Quality of Regulatory Impact Assessments in Poland 2002 – 2003 Radoslaw Zubek ������������������������������������������������������������������������������������������� 135 Chapter 8 Governance Indicators and Executive Reforms in Central Europe Martin Brusis ������������������������������������������������������������������������������������������������ 151 Index of Authors Cited �������������������������������������������������������������������������������� 171 Subject Index ������������������������������������������������������������������������������������������������ 175 About the Authors Brusis, Martin is a research associate at the Centre for Applied Policy Research, University of Munich. His research interests include policy reforms, democratiza- tion, Europeanization and executive governance in Central and Eastern Europe. He has published in East European Politics and Societies, Comparative European Politics, Governance, and the Journal of European Public Policy. Gray, Pat is course director for the MA in International Public Administration at London Metropolitan University. He currently manages an EU TEMPUS project with Urals Academy of Public Administration, Ekaterinburg, Russian Federa- tion. Potůček, Martin is Professor of Public and Social Policy at Charles University Prague, Faculty of Social Sciences, and Head of the Center for Social and Economic Strategies there. Permanent Guest Professor, University of Constance, Germany. He concentrates on the research of processes of forming and implementing public and social policy (including strategic governance), the regulatory functions of the market, government and civic sector, and on the processes of European integration. Further information: http://martinpotucek.cz Protsyk, Oleh is a Senior Research Associate at the European Centre for Minority Issues; Ph.D. Rutgers University; research interest: executive-legislative relations, institutional aspects of ethnic conflict regulation, political parties. His publications appeared in East European Politics and Society, European Journal of Political Re- search, Europe-Asia Studies, Party Politics, Political Studies, Post-Soviet Affairs, and Problems of Post-Communism. His last publication is "Real and "Virtual" Elements of Power Sharing in the Post-Soviet Space: the Case of Gagauzian Au- tonomy," (co-authored with Valentina Rigamonti), Journal on Ethnopolitics and Minority Issues in Europe, Vol. 6, Issue 1 (2007). Shoylekova, Mina is assistant professor in the Public Administration Department, Sofia University "St. Kliment Ohridski". She has worked in the administration of the Council of Ministers of Bulgaria and has been involved as an expert in a number of projects for the public administration reform. She currently works in the European Commission, DG Employment, Social Affairs and Equal Opportunities on the monitoring and coordination of the ESF funded Administrative Capacity Operational programme for Bulgaria. Staroňová, Katarina is a Lecturer at the Institute of Public Policy, Comenius Uni- versity in Bratislava, Slovakia and a consultant in the issues of governance in CEE countries. She was a junior scholar at Woodrow Wilson Research Center in USA (2003). Her research is in the area of policy making processes and the capacity of central European governments, with specific focus on politico-administrative rela- 7 STRATEGIC POLICY MAKING IN CENTRAL AND EASTERN EUROPE tions, policy processes, public involvement in decision making and implementation of impact assessment. Contact: Institute of Public Policy, Faculty of Social and Economic Studies, Comen- ius University Bratislava, Slovakia. E-mail: [email protected] Vass, Laszlo is rector and professor at the Budapest College of Communication and Business, and the head of the Center for Government and European Public Policy Studies at the Corvinus University of Budapest. His research interest is government, public management and public policy. He is author of papers and chapters in books and journals about the Hungarian public administration, civil service and administrative reforms. He is also a co-editor of the series of Political Yearbook of Hungary. Zubek, Radoslaw is a Research Fellow in the European Institute at the London School of Economics and Political Science. He is the author of ‘Core Executive and Europeanization in Central Europe’ (Palgrave macmillan 2008) and has published in the Journal of European Public Policy, West European Politics, Journal of Legisla- tive Studies and in various edited volumes. He has also worked as a consultant to many private and public organizations, including Ernst & Young, OECD-SIGMA and Polish Human Rights Commissioner. [[email protected]] 8 Introduction: The Challenge of Strategic Policy Making Martin Brusis, Katarina Staroňová, Radoslaw Zubek Strategic policy making is about governments achieving at least three types of goals. The first goal is to produce policies that bring collective rather than secto- ral benefits. Collective-benefit policy is one that maximises the interests of many constituencies, whereas sectoral-benefit policy directs financial or other gains to narrow geographical, economic or other groups. The second goal is to ensure that collective policy benefits are sustainable. This kind of strategic orientation requires that governmental action is informed by a longer-term perspective, going beyond immediate re-election concerns. The third goal is to develop policies that maximise gains and minimise costs to their addressees. Such cost-efficiency is achieved when policy making is informed by an in-depth analysis of causal relations and careful consideration of all available policy options. In brief, strategic leadership is about making integrative, future-oriented and knowledge-based policies. Though highly desirable, strategic policy making is inherently difficult. A key problem is that governments are organised along departmental lines, which encourages agencies to ‘go it alone’ or pursue sectoral interests at the expense of the strategic interests of the cabinet. Departmentalism is a problem common to all governments (Andeweg 2000). It is endemic because the political performance of individual ministers is judged based upon the size of benefits that their policies bring to their department and social and economic clientele. The departmental bias is also reinforced by the need to secure the support of party organisation and ministerial staff. In Central Europe, departmentalism has been accentuated by a weakly developed tradition of building horizontal linkages inside ministerial administration which, in the past, benefited from the coordinating role of the communist party (Dimitrov, Goetz, and Wollmann 2006). Another problem is posed by electoral cycles and political responsiveness to short-term electoral concerns. All democratic government is always pro tempore (Linz 1998) but if the life of governments is short, political actors have strong incentives to maximise short-term gains and to underrate long-term benefits. The long-term perspective is lost, in particular if party systems are unstable and the powers of the professional civil service are weak. In Central Europe, both these conditions remain. Proportional electoral systems and unstable parties
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