Public Administration 2020 - Public Administration Development Strategy 2015-2020 - Gov.si

 
Public Administration 2020
Public Administration Development Strategy 2015–2020
Public Administration 2020
Public Administration Development Strategy 2015–2020
Title: Public administration 2020, Public administration development
strategy 2015–2020

Published by: Ministry of Public Administration for the Government                                                    Number: 01000-9/2014/11
                                                                                                                      Date: 29 April 2015
of the Republic of Slovenia, financed by European Social Funds

Prepared by: Operative working group of Ministry of Public Administration
Edited by: dr. Karmen Kern Pipan, Mateja Arko Košec, Marko Aškerc
Translation and language editing: The Secretariat-General of
the Government of the Republic of Slovenia

Design: Intakodalje, Maruša Račič
Printed by: Grafex d.o.o.
Number of copies printed: 500

Ljubljana, November 2015
1st edition, 1st print

   CIP - Kataložni zapis o publikaciji
   Narodna in univerzitetna knjižnica, Ljubljana

   35(497.4)«2015/2020«

            PUBLIC administration 2020 : public administration development strategy 2015-2020 / [edited by
       Karmen Kern Pipan, Mateja Arko Košec, Marko Aškerc ; translation PSD - Translation Services]. - 1st ed., 1st
       print. - Ljubljana : Ministry of Public Administration for the Government of the Republic of Slovenia, 2015

   ISBN 978-961-6651-18-9
   1. Kern Pipan, Karmen
   281530368
                                                                                                                                                Public Administration 2020
                                                                                                                                            Public Administration Development Strategy 2015–2020
Table of contents

Summary of the Public administration development strategy 2015–2020................................... 12
Introductory thought............................................................................................................................................ 17

1. Introduction......................................................................................................................................................... 21

2. Vision, mission and the basic purpose. ..................................................................................................... 24

3. Basic strategic framework and guidelines. ........................................................................................... 29
     3.1 Guidelines and bases at the international and national level...................................................................... 30

4. Review and analysis of the situation......................................................................................................... 34
     4.1 Situation evaluation........................................................................................................................................... 34
     4.2 SWOT analysis..................................................................................................................................................... 36

5. Concept of the Strategy and key strategic objectives....................................................................... 45

6. Operationalisation of key strategic objectives.................................................................................... 49
     6.1 Efficient organisation......................................................................................................................................... 49
          6.1.1 Rational public administration organisation....................................................................................... 49
          6.1.2 Programming budget.............................................................................................................................. 59
          6.1.3 Project management in public administration. .................................................................................. 64
     6.2 Efficient use of resources................................................................................................................................... 67
          6.2.1 Human resource management.............................................................................................................. 67
                 6.2.1.1 Enhancing the competence of civil servants......................................................................... 77
          6.2.2 Public procurement. ............................................................................................................................... 81
          6.2.3 Physical asset management................................................................................................................... 86
6.3 Improving legislative environment................................................................................................................... 90               List of tables
          6.3.1 Improving legislation, reducing legislative burdens and including key stakeholders. .................. 90
          6.3.2 Modernisation of administrative procedural law............................................................................... 98                               Table 1: Review of the territorial organisation of public administration bodies (excluding self-governing local communities)......51
     6.4 Open and transparent operation with zero tolerance to integrity violation in the public sector........ 103                                                            Table 2: Measures for achieving the target state of the rational public administration organisation.................................... 57
          6.4.1 Responsible, open and transparent functioning of the public administration............................. 103                                                    Table 3: Measures for achieving the target state in the area of programming budget. ....................................................... 63
          6.4.2 Point of single contact for public administration service users...................................................... 108                                      Table 4: Measures for achieving the target state in the field of project management in public administration..................... 66
          6.4.3 Zero tolerance to integrity violation in the public sector................................................................. 112                                Table 5: Measures for achieving the target state in the field of human resource management............................................ 76
     6.5 Quality management systems in public administration.............................................................................. 117                                 Table 6: Measures for achieving the target state for enhancing the competence of civil servants........................................ 80
     6.6 Modernisation of the inspection procedure................................................................................................ 125                         Table 7: Measures for achieving the target state in the area of public procurement. .......................................................... 85
     6.7 Effective informatics, increased use of e-services and interoperability of information solutions...... 133                                                            Table 8: Measures for achieving the target state for the physical asset management......................................................... 89
                                                                                                                                                                               Table 9: Measures for achieving the target state for improving legislation,
7. Strategy realisation plan.............................................................................................................................. 143                 reducing legislative burdens and including key stakeholders . ........................................................................................... 96
     7.1 Promotion and communication with stakeholders, implementation of the strategy............................ 143                                                         Table 10: Measures for achieving the target state for the modernisation of administrative procedural law....................... 102
     and holders of activities. ........................................................................................................................................ 143   Table 11: Actions for achieving the target state for responsible, open and
     7.2 Monitoring and evaluating the implementation of the Strategy. ............................................................ 150                                        transparent functioning of the public administration...................................................................................................... 107
                                                                                                                                                                               Table 12: Actions for achieving the target state for the point of single contact for public administration service users........ 111
8. Risk factors for realisation of the Strategy. ...................................................................................... 155                                    Table 13: Actions for achieving the target state for zero tolerance to integrity violation in the public sector....................... 116
                                                                                                                                                                               Table 14: Actions for achieving the target state in the field of quality management systems in public administration......... 124
9. Sources and bibliography............................................................................................................................. 158                   Table 15: Actions for achieving the target state for modernisation of the inspection procedure......................................... 132
                                                                                                                                                                               Table 16: Actions for achieving the target state for the effective informatics,
Appendix 1: Glossary.............................................................................................................................................. 160         increased use of e-services and interoperability of information solutions......................................................................... 139
                                                                                                                                                                               Table 17: Activities during the preparation of the Strategy, September 2013-November 2014............................................ 144
Appendix 2: List of abbreviations..................................................................................................................... 164                     Table 18: Promotion and presentation of the Strategy, its objectives,
                                                                                                                                                                               measures and activities between December 2014 and April 2015..................................................................................... 147
Modern public administration progress and quality policy............................................................ 166

The process of preparing the Public administration development strategy 2015-2020
and an indication of the participating. ........................................................................................................ 168
Summary of
the Public
administration
development
strategy 2015–2020
P ublic A dministration 2020 – P ublic A dministration D evelopment S trategy 2015–2020                                                                                                                                 P ublic A dministration 2020 – P ublic A dministration D evelopment S trategy 2015–2020

                                                     Summary of the Public administration                                         tor which includes all bodies and institutions, directly    enhance the business environment for the develo-             and transparent implementation of public procure-
                                                     development strategy 2015–2020                                               or indirectly financed from the state budget or bud-        pment of the economy and boost competitiveness,              ment, and through the centralisation of Government
                                                                                                                                  gets of local communities.                                  which will in turn improve Slovenia’s ranking in such        IT management and development.
                                                          The Public Administration Development Strate-                                                                                       international charts.
2015–2020

                                                                                                                                                                                                                                                                                                                                                          2015–2020
                                                     gy 2015–2020 (hereinafter referred also as ‘PADS’) is                             The basic objectives of the Strategy will be focu-                                                                        Regarding human resource management, the ope-
                                                     a uniform umbrella strategic document of the Gover-                          sed on the quality and efficiency, transparency and               Significant attention will also be paid to efficient   ration will be aimed at efficient personnel planning,
                                                     nment of the Republic of Slovenia which includes de-                         responsibility of public administration. Additional         use of resources (personnel, funds, real estate, etc.).      transparent personnel procedures, the recognition
  administration development strategy

                                                                                                                                                                                                                                                                                                                                                            administration development strategy
                                                     velopment guidelines for the next six years. Following                       measures and activities will help us achieve a higher       The current public administration system in the Repu-        and development of civil servants’ competences, and
                                                     the adoption of the strategic document, the first two-                       level of professionalism, innovation and responsibility     blic of Slovenia is organised distinctively by sectors or    the monitoring of their development, greater mobility
                                                     -year action plan will be drafted, which will include                        of civil servants. Decisions and activities will be based   areas, which makes horizontal inter-sectoral connecti-       of employees, motivation of employees with a clear
                                                     concrete activities and projects for the attainment of                       on the expected benefits for users together with their      ons and cooperation difficult. Due to the dispersal          connection between the results of their work and re-
                                                     the strategic horizontal objectives.                                         needs. Internal supervisory mechanism will be additi-       of, and the lack of connection between public admi-          muneration, and at comprehensive monitoring of the
                                                                                                                                  onally strengthened to limit the risk of corruption and     nistration bodies at all levels, the costs of the State’s    attainment of the key objectives and indicators. The
                                                          The document especially refers to the field of pu-                      intentionally stimulate the transparency of operation.      operation are higher and interruptions occur in their        emphasis will also be put on efficient supervision over
                                                     blic administration whose tasks include tasks related                        The leading principle of the operation of public admi-      coordination. The result is a poor quality of human          the implementation of the civil servant system and the
P ublic

                                                                                                                                                                                                                                                                                                                                                          P ublic
                                                     to the drafting of policies and regulations, and ad-                         nistration will be aimed at the strengthening of basic      and other resources (for example the lease of business       wage system. To attain the objectives of the Strategy, a
                                                     ministrative tasks and tasks of the executive branch                         values with special emphasis on the rule of law, fair-      premises). To achieve better quality of services, and        competency model will be established, the training of
  of the

                                                                                                                                                                                                                                                                                                                                                            of the
                                                     at the state and territorial level. Administrative tas-                      ness, cooperation and consensus orientation.                efficiency of public administration and thus of the en-      civil servants will be modernised, and the information
S ummary

                                                                                                                                                                                                                                                                                                                                                          S ummary
                                                     ks are carried out by the Government, ministries,                                                                                        tire public sector, we will strive to connect and merge      system for human resource management in the state
                                                     bodies within ministries (e.g. units of the Financial                             Slovenia’s international competitiveness ranking       functions of related bodies at the state and territorial     administration bodies will be upgraded. The objective
                                                     Authority, and the Surveying and Mapping Authority)                          which is deteriorating each year points to the urgen-       level. At the level of regional administration operati-      of the renovation and modernisation of public admini-
                                                     and administrative units. The aforementioned prima-                          cy of the development and modernisation of public           on, a uniform regional administration structure will         stration is to enhance the efficiency and professiona-
                                                     ry area of administrative tasks also includes munici-                        administration. In 2014, the World Bank chart (Doing        be established (administrative districts/administrati-       lism of civil servants and ensure that tasks are carried
                                                     pal administrations and bearers of public authority.                         Business) ranked Slovenia 51st among 189 countries,         ve centres). Mechanisms for rational management of           out professionally and in accordance with the values
                                                     Certain matters (e.g. the salary system in the public                        which was five places lower than the previous year.         the entire system will be established by introducing a       and principles of good management. Within the scope
                                                     sector, the number of employees, administrative pro-                         The aforementioned chart refers to the assessment           central management system of real estate owned or            of this objective, the systemic upgrading of the wage
                                                     cedures, integrity, public procurement, etc.) provide                        of ease of doing business in individual countries           leased by the State. More efficient use of resources         system will be carried out to achieve a clear connection
                                                     a common basis and indicate the direction of the                             (establishing companies, acquiring permits, etc.).          will be provided through a programming budget, the           between the results of employees’ work and remunera-
                                                     operation and development of the entire public sec-                          The attainment of the objectives of this Strategy will      establishment of suitable mechanisms for efficient

12                                                                                                                                                                                                                                                                                                                                                        13
P ublic A dministration 2020 – P ublic A dministration D evelopment S trategy 2015–2020                                                                                                                                   P ublic A dministration 2020 – P ublic A dministration D evelopment S trategy 2015–2020

                                                     tion for which clear indicators will be prepared. The re-                    Higher level of transparency in the legislative procedu-      gement. Administrative statistics will be reformed to        mation provision for citizens and business entities. The
                                                     sults of work and not of a workplace will be evaluated.                      re (legislative footprint) and in the use of public funds     monitor the efficiency of public administration.             modernisation of the digitalisation of business proces-
                                                                                                                                  will be provided, and reuse of the public sector’s data                                                                    ses will significantly improve flexibility, connectivity
                                                          Since we are well aware of the excessive regula-                        will be additionally promoted. To improve the reputa-              In the field of quality management, certified mo-       and transparency in public administration, and the in-
2015–2020

                                                                                                                                                                                                                                                                                                                                                            2015–2020
                                                     tion of the business environment which hinders eco-                          tion of public administration, communication with the         dels adjusted to the public sector will be introduced,       creased use of electronic channels will lower the costs
                                                     nomic development, a great deal of the operation will                        public will be carried out in a planned and intensive         which will include constant improvements at all levels,      for end-users and service providers. For citizens and
                                                     strive to improve the business environment and satis-                        manner, and regular two-way communication will be             regular monitoring of process indicators, and periodic       the business sector to be satisfied, the consolidation
  administration development strategy

                                                                                                                                                                                                                                                                                                                                                              administration development strategy
                                                     faction of citizens. Projects will be focused on preven-                     promoted in addition to the open and transparent              external assessment of public administration bodies          and modernisation of contact points for citizens and
                                                     tive mechanisms which facilitate the adoption of high-                       operation. To attain the objectives, the editorial policy     effectiveness.                                               the business sector will be carried out in order to provi-
                                                     -quality regulations while consistently observing the                        will be reformed and the state administration single                                                                       de reliable online information and simple e-procedures
                                                     standards adopted from the Resolution on Legislative                         contact centre will be established.                                By reforming and modernising inspection, effecti-       in one place by observing the needs of users (according
                                                     Regulation (involvement of the public, transparency                                                                                        veness will be enhanced, preventive operation of             to the life event principle) and introducing systematic
                                                     of the procedure, regulatory impact assessment, etc.)                              The risk of corruption will be limited by numero-       inspectors will be strengthened, inspections will be         measurement of user satisfaction.
                                                     and on corrective mechanisms – measures to simpli-                           us additional activities. Special attention will be paid to   rationalised by merging and implementing joint in-
                                                     fy the adopted legislation and reduce legislative bur-                       training and the implementation of international guide-       spections, and a new tool to ease the burden of in-               When modernising Slovenian public administra-
P ublic

                                                                                                                                                                                                                                                                                                                                                            P ublic
                                                     dens, and eliminate administrative barriers (follow-up                       lines. A uniform national risk register for the entire pu-    spectors when carrying out their expert work will            tion in the period of 2015 - 2020, the objectives, gu-
                                                     on already planned activities). Additional attention                         blic sector will be set up. Systematic and thorough risk      be introduced. As a priority, inspectors’ work will be       idelines and commitments at the international level,
  of the

                                                                                                                                                                                                                                                                                                                                                              of the
                                                     will be paid to the introduction of the systematic eva-                      management will be reinforced by reformed classificati-       aimed at administrative actions, and significantly less      and good practices of EU Member States will also be
S ummary

                                                                                                                                                                                                                                                                                                                                                            S ummary
                                                     luation of the adopted legislation and the additional                        on of high-risk jobs, systematic supervision mechanisms       at tasks regarding minor offences and the issue of fi-       observed. The awareness that effective and efficient
                                                     measures will be introduced to reduce the volume of                          and sanctions in cases of potential violations.               nes. The principle of openness and transparency of           public administration is the basis for the development
                                                     regulations by 10 per cent by 2020, providing greater                                                                                      inspectors’ operation (single online entry point), and       of the economy and prosperity is very important.
                                                     transparency and simplicity of the requirements impo-                              Modernisation of administrative procedural law          thus legal predictability of business entities and citi-
                                                     sed by legislation on the economy and citizens.                              will develop in the direction which allows administra-        zens will be emphasised. Inspectors will operate on               To realise the key projects regarding quality and
                                                                                                                                  tive relations to develop and the state to have a more        the basis of a risk assessment and will publish the cri-     effectiveness, human resource management, better
                                                           Mechanisms for transparent operation of public                         administrative role, which will contribute to better          teria for determining priority tasks.                        legislation and administrative procedures, transparen-
                                                     administration and the wider public sector in all areas                      reputation among citizens and competitiveness of the                                                                       cy and integrity, and the development of IT solutions,
                                                     will be strengthened. Transparency brings greater trust                      country. The reformed procedural legislation will be               The emphasis in the field of IT support, enhancing      funds from the new EU financial perspective are antici-
                                                     and limits the risk of corruption, as well as stimulates                     simple, shorter and more transparent, and will faci-          the use of e-services, digitalisation and interoperability   pated. The Strategy is also the condition to access the
                                                     higher level of responsibility of the wider public sector.                   litate more efficient administrative procedure mana-          will be put on easier communication and better infor-        aforementioned sources via EU structural funds on the

14                                                                                                                                                                                                                                                                                                                                                          15
P ublic A dministration 2020 – P ublic A dministration D evelopment S trategy 2015–2020                                                                 P ublic A dministration 2020 – P ublic A dministration D evelopment S trategy 2015–2020

                                                     basis of the signed Partnership Agreement between                            Introductory thought
                                                     Slovenia and the European Commission for the period
                                                     2014–2020.                                                                        Efficient public administration is the basis for         The reputation of civil servants depends on effici-
                                                                                                                                  the success of the entire country. Therefore, this       ent, professional and fair work, and on active commu-
2015–2020

                                                          The chapters of the Strategy summarise the as-                          strategic document provides clear development gu-        nication of public administration with service users and
                                                     sessment of the situation, objectives in individual fiel-                    idelines. Within the aforementioned resources avai-      the wider public. Measures have been taken to monitor
                                                     ds, key measures to attain the objectives, and develo-                       lable, measures which will bring more responsibility     the attainment of the objectives, for fair remuneration,
  administration development strategy

                                                     pment leaders who will implement individual activities                       and focused sense of work for the common good into       a more prudent education and training system, and for
                                                     and projects. The PADS 2020 is accompanied by the                            the operation of public administration will be firmly    greater transparency and openness, and regular two-
                                                     statement of the Prime Minister and all Government                           promoted. Public administration must also assume         -way communication with citizens and the public.

                                                                                                                                                                                                                                                                                             thought
                                                     members entitled “Progress and quality policy in mo-                         the key responsibility to gradually reduce bureaucra-
                                                     dern public administration” with which they additi-                          cy, which will be based on simpler procedures, clear            As the leading principle of our everyday actions,

                                                                                                                                                                                                                                                                                          I ntroductory
                                                     onally undertake to observe the policy adopted and                           definition of objectives, and especially on the reco-    the basic values should be: the rule of law, responsibi-
                                                     strive to attain the objectives in their work. A special                     gnition of direct personal responsibility of employees   lity, transparency, cooperation, fairness and integrati-
                                                     chapter of the Strategy is dedicated to monitoring and                       for decisions and operations.                            on, consensus-orientation, innovation and efficiency.
P ublic

                                                     evaluating the implementation of measures to attain
                                                     the objectives. The attainment of the objectives throu-
  of the

                                                     gh planned projects will be supervised by the Strategic
S ummary

                                                     Council which was formed to prepare this Strategy and
                                                     is composed of representatives of state administrati-                                                                                                                            Boris Koprivnikar,
                                                     on, the expert public and non-governmental organisa-                                                                                                              Minister of Public Administration
                                                     tions, and will address the report on the implementa-
                                                     tion of measures and report to the Government of the
                                                     Republic of Slovenia twice annually.

16                                                                                                                                                                                                                                                                                        17
1.
Introduction
P ublic A dministration 2020 – P ublic A dministration D evelopment S trategy 2015–2020

1. Introduction                                               citizens and resident under the same conditions and in
                                                              a manner accessible to all. Excellence in the implemen-
      The adoption of the Public Administration Deve-         tation of the functions of the State and public admini-
lopment Strategy 2015–2020 is important for seve-             stration is a commitment that affects the development
ral justified reasons. Several institutions have esta-        of democratic processes in society, economic growth
blished that there was no strategic document laying           and the social cohesion of all its inhabitants. For the
out the long-term development of Slovenian public             State to successfully carry out this task, the State must
administration. In 2012, the OECD issued a review             be able to prepare, adopt and implement suitable
of the operation of Slovenian public administration,          policies, and ensure their realisation through syste-
which establishes inter alia that Slovenia’s strategy to      matic regulation of rules, and its competences must
overcome the crisis does not include strategies and           include suitable institutions and mechanisms for co-

                                                                                                                                                              I ntroduction
measures which would help public administration               ordination and implementation of adopted decisions.1
become more efficient and stable in the long term.
It also states that a well-functioning public admini-              Monitoring the implementation of the Slovenia’s
stration is crucial for providing support and assistan-       Development Strategy 2005–2013 shows that in the
ce to the Government when determining a feasible              previous period Slovenia was not sufficiently success-
strategy to rebuild the economy and the State, for            ful and ambitious in attaining the key strategic objecti-
urgent long-term growth, and for the recognition              ves regarding economic, social and environmental
and implementation of suitable measures. In 2013,             development. Failure to attain the objective was also
the European Commission issued the Position of the            affected by the economic crisis.
Commission Services on the development of the Par-
tnership Agreement and programmes in Slovenia for                 The process of drafting the Public Administration
the period 2014–2020 whose prerequisites to attain            Development Strategy 2015–2020 included cooperati-
thematic objective 11 include a strategy to improve           on and acquisition of the opinions of key stakeholders
administrative efficiency of Member States, including         in public administration in Slovenia, and expert and
reform of public administration.                              wider public.

      The State should guarantee the exercise of autho-
                                                              1   Summarised from: Drafting a concept paper on the Organizational
rity and provide public services or public goods to all its       Structure of the Executive Public Administration, SIGMA, 2008.

                                                                                                                                                              21
2.
Vison,
mission and
the basic
purpose
P ublic A dministration 2020 – P ublic A dministration D evelopment S trategy 2015–2020                                                                                                                            P ublic A dministration 2020 – P ublic A dministration D evelopment S trategy 2015–2020

                                               2. Vision, mission and the basic purpose                                     ve and through its service role, it will facilitate prompt   it will achieve above-average results among EU Mem-
                                                                                                                            issue of administrative permits. A fundamental change        ber States regarding high-quality service provision.
                                                    Efficient and stable public administration is a very                    in thinking based on awareness that the administrati-
                                               important social subsystem, and, in addition to econo-                       on carries out administrative tasks for its users will be          The basic values which are the leading principle
                                               mic development and social cohesion, affects the de-                         required. Therefore, the administration must do eve-         of our everyday actions in the implementation of the
                                               velopment of the country and its prosperity. Therefore,                      rything necessary within its legal options to make users     Strategy for the needs of stakeholders and admini-
                                               the Government of the Republic of Slovenia decided to                        satisfied with its services. High-quality administrative     strative service users are: responsibility, transparen-
                                               modernise public administration by acting in a profe-                        service must be given priority over the quantity of ca-      cy, the rule of law, cooperation, fairness and integrati-
  mission and the basic purpose

                                                                                                                                                                                                                                                                                                                                                 mission and the basic purpose
                                               ssional, expert and stable manner, and in accordance                         ses addressed, whereby the basic principle is lawfulness     on, consensus-orientation, innovation, effectiveness
                                               with the principles of good management..In numerous                          and satisfaction of participants. The key to high-quality    and efficiency.
                                               areas, public interest must be given meaning again as                        administrative service are motivated and well-managed
                                               the need to regulate social relationships, which brings                      employees in public administration.
                                               the urgency of entering administrative and legal rela-
                                               tions in each person’s everyday life. When interventi-                             The vision of the Government of the Republic of
                                               on from the State is not required, regulation must be                        Slovenia is to organise modern public administration
V ision ,

                                                                                                                                                                                                                                                                                                                                               V ision ,
                                               recognised as an administrative barrier, deregulated                         which will observe the following principles and values
                                               or suitably amended. When regulation is mandatory                            of:
                                               and necessary for the functioning of the social system,                      • law and the rule of law;
                                               mechanisms must be established which will facilitate                         • professionalism;
                                               the acquisition of administrative permits or the imple-                      • participation;
                                               mentation of other activities in a reasonable period                         • transparency, integrity and corruption prevention;
                                               of time. Along with the amendment of regulation, va-                         • responsiveness and user-orientation;
                                               rious means for issuing permits will be studied, which                       • consensus-orientation and integration;
                                               will efficiently protect the public and private interest.                    • fairness and integration;
                                               Wherever possible, decisions of authorities will be re-                      • innovation, success and efficient use of resources;
                                               placed by the possibility of partnership cooperation                         • responsibility;
                                               of the administrative authority and other participants                             as the basis for measures and indicators of effecti-
                                               which will harm neither public nor private interest. By                      veness, observation of public interest, satisfaction of
                                               advising and guiding, the administration will be proacti-                    citizens, companies and other stakeholders with which

24                                                                                                                                                                                                                                                                                                                                             25
3.
Basic strategic
framework and
guidelines
P ublic A dministration 2020 – P ublic A dministration D evelopment S trategy 2015–2020

3. Basic strategic framework and                                                lop. The Strategy is the umbrella document which in-
guidelines                                                                      cludes public administration and basic guidelines for
                                                                                other line ministries which will prepare on this basis
     As the fundamental strategic document in Slo-                              programmes for individual areas and implementing
venian public administration, the Strategy is being                             line ministry documents at the national, regional and
prepared in relation to the contents included in the                            local levels (e.g. education, science, the economy,
Partnership Agreement between Slovenian and the                                 employment, social affairs, the environment, health
European Commission for the 2014–2020 period, and                               care, culture and others). With this document, the Go-

                                                                                                                                                                                strategic framework and guidelines
the Operational Programme for the Implementation                                vernment of the Republic of Slovenia binds all state
of the EU Cohesion Policy in the period 2014-2020,                              administration bodies and other state authorities, ta-
the Slovenian Industrial Policy, the Europe 2020                                king into account the principles of autonomy of local
Strategy and other strategic bases at the national                              self-government, municipal administrations and hol-
and international level (materials from the OECD2                               ders of public authority to carry out activities that fall
in the European Commission3).                                                   under their areas in the manner and within time limits
                                                                                defined in this document.
      The Strategy includes the area of public admini-

                                                                                                                                                                               B asic
stration in the Republic of Slovenia.4 Since certain con-                            In line with the adopted Strategy, action plans
tents (e.g. salary system, the number of employees,                             for the realisation of measures by individual strategic
administrative procedures) reach into the wider pu-                             objectives will be drafted on the basis of the analysis
blic sector, the Strategy for the aforementioned areas                          of the existing situation and the recognition of discre-
provides a common basis and indicates the direction                             pancies between the desired and actual situation in
in which the public sector should operate and deve-                             individual thematic fields. Performance indicators and
                                                                                target values in 2020 are defined for each strategic
2   Summarised from: OECD’s review of public administration in the Repub-       objective. Individual indicators and the attainment of
    lic of Slovenia; Slovenia: Towards a Strategic and Efficient State, 2012,
                                                                                the strategic objectives will be regularly monitored on
    co-financed by ESF funds.
3   Summarised from: Position of the Commission Services on the develop-        the basis of the results of the implementation of two-
    ment of the Partnership Agreement and programmes in Slovenia for the        -year action plan. To attain the objectives, evaluations,
    period 2014–2020.
                                                                                adjustments and revisions of the planned measures
4   Public administration comprises state administration, municipal admin-
    istrations and holders of public authority.                                 are expected to be carried every two years. If the de-

                                                                                                                                                                               29
P ublic A dministration 2020 – P ublic A dministration D evelopment S trategy 2015–2020                                                                                                                                     P ublic A dministration 2020 – P ublic A dministration D evelopment S trategy 2015–2020

                                                   sired target values are not attained, suitable measures                           stakeholders, and expert and wider public within the       ried out as the basis for strategic guidelines for indivi-   edier transfer of good practice into Slovenian public
                                                   will have to be taken.                                                            scope of public discussion, suitably amended and ado-      dual fields of public administration. A uniform strategic    administration. Active cooperation in the international
                                                                                                                                     pted by the Government of the Republic of Slovenia.        document was drafted as the basis for two-year action        environment within expert meetings, study visits, con-
                                                         The Strategy is a document of the Government                                                                                           plans of measures by individual strategic objectives         ferences and other activities will provide suitable pro-
                                                   of the Republic of Slovenia. Therefore, the Strate-                               3.1 Guidelines and bases at the international and          and thematic fields of public administration. The Pu-        motion of the Slovenia’s interests and the strengthe-
                                                   gic Council of the working group for the drafting of                              national level                                             blic Administration Development Strategy 2015–2020           ning of the promotion of achievements in the field
                                                   the Public Administration Development Strategy                                                                                               is a prerequisite for accessing structural funds within      of public administration, facilitate better institutional
                                                   2014–2020 was supplemented during its preparation                                      The basic purpose of the drafting of the document     Priority Axis 11 “the rule of law, enhanced institutio-      capacity of public bodies, and contribute to efficient,
 strategic framework and guidelines

                                                                                                                                                                                                                                                                                                                                                             strategic framework and guidelines
                                                   with representatives of suitable ministries and bodi-                             is to present the bases for realistic improvement of       nal capacity, efficient public administration, support       innovative and transparent public administration.
                                                   es (e.g. the Ministry of Finance, the Institute of the                            the operation of Slovenian public administration by        for the development of NGO, and the strengthening
                                                   Republic of Slovenia of Macroeconomic Analysis and                                modernising and renewing it, which includes the esta-      of the capacity of social partners” in the Operational             Regarding European matters and international co-
                                                   Development, the Ministry of Economic Development                                 blishment of a comprehensive management system             Programme for the Implementation of the EU Cohe-             operation in the period by 2020, harmonised and stra-
                                                   and Technology, the Ministry of Labour, Family, Soci-                             through systematic strategic planning, the introdu-        sion Policy in the period 2014-2020. Priority Axis 11        tegically oriented participation of representatives in the
                                                   al Affairs and Equal Opportunities). Also supplemen-                              ction of quality management systems to simplify and        refers to thematic objective 11 “enhanced institutional      field of public administration operation at the EU level
                                                   ted was the operational group of the working group                                modernise administrative procedures, and to monitor        capacity of public bodies and interested parties, and        and in other international organisations, such as the
                                                   for the drafting of the Public Administration Develo-                             and evaluate work results and objectives at all levels.    contribution to efficient public administration” in the      OECD, the United Nations Organisation, and the Council
B asic

                                                                                                                                                                                                                                                                                                                                                            B asic
                                                   pment Strategy 2014–2020, which was established                                                                                              Partnership Agreement between Slovenian and the              of Europe, must be ensured, and cooperation with prio-
                                                   by the minister responsible for public administration5                                  The Strategy is a uniform umbrella strategic do-     European Commission for the 2014–2020 period.                rity regions and countries must be strengthened.
                                                   who is also its leader. The proposed bases and the la-                            cument in the field of public administration, which
                                                   bour plan, the Strategy disposition, the first draft and                          also signifies support and commitment to realise the            International activities in the field of public admi-        High technological, economic and social changes
                                                   inter-ministerial coordinated Strategy proposal were                              development strategy for the entire country. The basic     nistration show Slovenia’s integration in the European       in the last two decades have brought the need for
                                                   approved by the Government of the Republic of Slove-                              purpose is to renew and modernise public administra-       Union (EU) and wider international environment, whe-         numerous new public services. Therefore, the Strate-
                                                   nia in order to acquire as wide a consensus as possible.                          tion which will operate more efficiently, professionally   re, due to the economic crisis, uneven development           gy will strive for regular monitoring of the needs and
                                                   The draft of the proposed Strategy was presented to                               and in accordance with the principles of good mana-        in the world, rapid technological progress, and other        the development of new public services along with the
                                                                                                                                     gement with an excellence of a professional public         consequences of globalisation, changes occurred              optimisation of existing services.
                                                                                                                                     civil service, and will contribute as much as possible     which require more active and efficient participation
                                                   5   Pursuant to the Government of the Republic of Slovenia Act (Official Ga-
                                                       zette of the Republic of Slovenia, nos. 24/05 – official consolidated text,   to the competitiveness of the business environment,        of Slovenian representatives at all levels of decision
                                                       109/08, 38/10 – ZUKN, 8/12, 21/2013, 47/13 – ZDU-1G and 65/14), the
                                                                                                                                     the development of the country and to prosperity. The      making in the EU and other international forums, en-
                                                       Ministry of Public Administration took over the tasks regarding public
                                                       administration from the Ministry of the Interior in October 2014.             analysis of the situation and labour processes was car-    hanced bilateral and multilateral operation, and spe-

30                                                                                                                                                                                                                                                                                                                                                          31
4.
Review and
analysis of the
situation
P ublic A dministration 2020 – P ublic A dministration D evelopment S trategy 2015–2020                                                                                                                                             P ublic A dministration 2020 – P ublic A dministration D evelopment S trategy 2015–2020

                                              4. Review and analysis of the situation                                      and systemic solutions to facilitate the lawful and ef-                   Therefore, it placed public administration reform in       formance, government efficiency, business efficiency
                                                                                                                           ficient implementation of labour and other personnel                      EU Member States among five most important tasks           and infrastructure. In 2014, Slovenia slipped to 55th
                                              4.1 Situation evaluation                                                     procedures must be ensured. The latter is essential in                    to support economic development. From this aspect,         place among 60 countries, in 2013, Slovenia ranked
                                                                                                                           organisational, public finance and substantive changes                    the European Commission proposed improvements              52nd, while in 2008, it was 20 places higher, i.e. it ran-
                                                    Research of the OECD – SIGMA establish that the                        in pubic administration, i.e. it rewards work perfor-                     in the operation of national public administrations        ked 32nd (IMD 2014, IMD 2013, IMD 2008). A similar
                                              diversity of organisational forms in public administra-                      mance, while motivation to attain the objectives will                     in EU Member States (the so-called Position of the         situation is shown by the global competitiveness in-
                                              tion, taking into account the size of the public sector                      be the guiding principle for managing civil servants.6                    Commission Services on the development of the Par-         dex which arises from the annual report of the World
                                              as determined by the State, is a serious threat to the                        The development of public administration largely de-                     tnership Agreement and programmes for the period           Economic Forum (WEF), as Slovenia lost eight places
 and analysis of the situation

                                              ability of the State to ensure and implement tasks in                        termines, facilitates and requires excellence in the im-                  2014–2020).                                                in comparison with 2013, and it lost six places in 2013.

                                                                                                                                                                                                                                                                                                                                                                and analysis of the situation
                                              the public interest. Management of such a risk may                           plementation of the functions of the State. Excellence                                                                               Slovenia ranks 70th among 144 countries. The most
                                              be alleviated by systemic regulation which determines                        in the implementation is shown in determining and                               In 2012, above-average results were achieved by      emphasised factors that affect entrepreneurship are:
                                              the competences of individual organisational forms                           implementing public policies that directly affect social                  Slovenia in payments to companies where delays amo-        availability of financing, inefficient government burea-
                                              and supervision over them. Too many organisatio-                             development and prosperity.                                               unted to 15 days, while the European average amou-         ucracy, restrictive labour legislation, corruption, tax ra-
                                              nal forms or too many organisational units, and with                                                                                                   nted to 28.3 days. Slovenia particularly excelled in the   tes and tax regulations. In 2014, Slovenia ranked 51st
                                              this a diversified organisational structure also increa-                          Comparative figures on the placement of countries                    field of establishing new companies which can be done      among 189 countries on the World Bank chart, which
R eview

                                                                                                                                                                                                                                                                                                                                                               R eview
                                              se the risk for these organisations not to pursue the                        in various international charts show different pictures                   in six days (without any costs), while the European av-    was five places lower than the previous year. The Do-
                                              common objective, which may affect the efficiency                            for Slovenia regarding individual performance indica-                     erage is 13.7 days (and 5 per cent of average income of    ing Business chart states the best countries to start a
                                              of the provision of public goods, and the responsibi-                        tors. The findings of the study “Excellence in Public Ad-                 residents of individual states). Regarding the indicator   business and it is also a competitiveness indicator of
                                              lity which is dispersed and difficult to establish. The                      ministration for competitiveness in EU Member States”7                    which defines the time for tax return calculation, Slo-    countries. The objectives of the Strategy are focused
                                              personnel aspect must also be considered in relation                          show that there is room for improvement in certain                       venia is slightly below the European average (260 hours    on improving the business environment for economic
                                              with organisational measures. The strategic issue of                         areas in Slovenia. The European Commission establi-                       annually, while the European average is 208 hours). The    development, and enhancing competitiveness and this
                                              human resource management in public administration                           shes that companies need efficient, cost-efficient and                    same applies to the field of the modernisation of the      Slovenia’s position on the aforementioned charts.
                                              is posed as a priority task in programming and stra-                         high-quality public services in order to be successful.                   public sector (e-government, remuneration of efficient
                                              tegic documents that define further development of                                                                                                     work of employees, service quality assessment, etc.).           In certain cases, the general and concrete opera-
                                              the country as a whole. In addition, the institutional                       6   Summarised from: Drafting a concept paper on the Organizational                                                                  tion of the administration (drafting, adopting and im-
                                                                                                                               Structure of the Executive Public Administration, SIGMA, 2008.
                                              framework is inconsistent, something which poses                                                                                                            In addition, the International Institute for Mana-    plementing regulations) pursues outlived bureaucratic
                                                                                                                           7   Summarised from: European Commission (2012), Excellence in Public
                                              a risk to efficient public administration, which is in                           Administration for competitiveness in EU Member States                gement Development (IMD) from Switzerland annual-          patterns due to which the administration is alienated
                                                                                                                               http://ec.europa.eu/enterprise/policies/industrial-competitiveness/
                                              turn reflected on its users (citizens, companies, etc.).                                                                                               ly publishes the World Competitiveness Yearbook. The       from natural and legal persons as users of its services.
                                                                                                                               monitoring-member-states/improving-public-administration/files/
                                              To realise this priority task, suitable regulatory bases                         pa_report_en.pdf                                                      calculations are based on four criteria: economic per-     In such cases, administration as a service for citizens

34                                                                                                                                                                                                                                                                                                                                                             35
P ublic A dministration 2020 – P ublic A dministration D evelopment S trategy 2015–2020                                                                                                                               P ublic A dministration 2020 – P ublic A dministration D evelopment S trategy 2015–2020

                                              when doing business with the State does not pursue                           4.2 SWOT analysis                                           • better awareness of corruption in society, a high         Weaknesses:
                                              its mission and acts as an untouchable bureaucratic                                                                                          level of transparency of information of a public cha-   • inconsistency in introducing the responsibility of
                                              system, generating the general notion that it exists as                           The SWOT analysis was prepared by a narrow project         racter, especially on public consumption, and better      employees in cases of failure to carry out the agre-
                                              an end in itself. This is reflected in every media gene-                     group by taking into account international recommenda-          transparency regarding state-owned companies;             ed tasks or attain the objectives;
                                              ralisation of the situation in individual (frequently uni-                   tions which show the key areas recognised by the group      •   a comparable European civil servant system for re-      • inactivity and inconsistency in recognising and remu-
                                              lateral) cases and in creating the impression of ineffici-                   as the basis for the drafting of the document.                  gulating labour and status relationships, and the         nerating employees who exceed the expected reali-
                                              ency, irrationality and shortcomings regarding contact                                                                                       rights and duties of employees in state authorities       sation of the agreed tasks and of the objectives;
                                              with real life in which users need administrative per-                       Strenghts:                                                      and the administrations of local communities;           • the lack of motivation mechanisms to promote pro-
 and analysis of the situation

                                              mits in a reasonable period of time, with reasonable                         • the established rules of the general administrative           the use of professional competence standards in-          fessionalism and innovation of employees;

                                                                                                                                                                                                                                                                                                                                                  and analysis of the situation
                                                                                                                                                                                       •
                                              material and procedural requirements, which pursue                              procedure ensure internationally and constitutio-            cluding selection criteria and verification methods     • the lack of the management ability including the si-
                                              clearly expressed public interest and suitable protecti-                        nally established standards of democratic and fair           of the competence of officials in state administra-       gnificance of social responsibility to employees and
                                              on of other stakeholders.                                                       procedures;                                                  tion;                                                     stakeholders;
                                                                                                                           • there are cases of good practices of individual ad-       •   introduced annual interviews as a tool to verify the    • weak connection between work results and remu-
                                                   Recently published data of the internatio-                                 ministrative bodies (e.g. administrative units) in the       attainment of the objectives and results of individu-     neration of employees;
                                              nal corruption perceptions index in the public                                  use of quality management tools;                             al civil servants;                                      • limited possibilities for flexible employee manage-
R eview

                                                                                                                                                                                                                                                                                                                                                 R eview
                                              sector published by Transparency International8                              • rich experience of institutions and individuals in        •   introduced personnel information system – CKEDU;          ment;
                                              showed that Slovenia slipped six places in 2013,                                developing e-government in public administration,        •   the operation of the Inspection Board is regulated      • the role of the human resources department in the
                                              i.e. from 37th to 43rd place among 177 countri-                                 established high-quality electronic services in indi-        by law, which facilitates taking strategic measures       administration is limited to operational tasks and is
                                              es. The aforementioned index addressed factors                                  vidual areas;                                                to enhance the efficiency of inspections;                 less focused on the development of the strategic
                                              such as the implementation of anti-corruption le-                            • the existing Strategy on IT and electronic services de-   •   the strategic plan of measures of the Inspection Bo-      role of the human resources function;
                                              gislation, availability of information, conflict of in-                         velopment and connection of official records SREP;           ard was adopted on 11 July 2013 by the Government       • resistance of authorities when introducing chan-
                                              terest and efficiency of anti-corruption measures.9                          • the established government ICT infrastructure                 of the Republic of Slovenia;                              ges in the field of human resource management is
                                              The aforementioned leads us to assume that changes                              (HKOM network, data centre, SIGOV-CA) and the            •   the bases for the implementation of the program-          expected, which is also a consequence of austerity
                                              in terms of modernisation, greater transparency, en-                            established national open data portal;                       ming budget were already included in the current          measures, a shortage of staff and the needs of cur-
                                              hancement of effectiveness and efficiency of Sloveni-                        • the established common methodology for measu-                 manner of drafting the budget of the Republic of          rent operations in changing conditions;
                                              an public administration are urgent and necessary.                              ring costs imposed on entities by legislation;               Slovenia;                                               • not everywhere are annual interviews recognised
                                                                                                                           • programme for reducing legislative burdens adop-          •   a wide consensus regarding the project of establi-        as a significant element of the development and
                                              8 Summarised from: http://cpi.transparency.org/cpi2013/                         ted at the EU level and at the level of all Member           shing national cloud computing.                           planning of employees’ careers;
                                              9 Summarised from: http://www.integriteta.si/component/content/arti-
                                                                                                                              States whose objective is to eliminate 25 per cent of
                                                cle/11-partner-transparency-international/311-politike-in-funkcionar-
                                                je-pozivamo-k-sistematicnemu-ukrepanju-proti-korupciji                        administrative burdens;

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P ublic A dministration 2020 – P ublic A dministration D evelopment S trategy 2015–2020                                                                                                                                   P ublic A dministration 2020 – P ublic A dministration D evelopment S trategy 2015–2020

                                              • a suitable number of qualified assessors in each autho-                        lated, and they address the available potential of ad-    Opportunities:                                              • implement digital government strategies, the Euro-
                                                  rity must be ensured to recognise and establish key                          vanced digital concepts differently and insufficiently;   • enhance the responsiveness and efficiency of public           pean Digital Agenda, the European eGovernment
                                                  competences, or another suitable manner of verifica-                     •   poor actual use of e-services, poor coverage of bro-        administration, enhance the efficiency of manage-             Action Plan;
                                                  tion must be determined, e.g. outsourcing of service                         adband communication connections to end users (ci-          ment, provide suitable knowledge, skills and com-         •   rapid development of digital and mobile lifestyle in
                                                  providers, which, however, is related to high costs;                         tizens, households), insufficient digital competences;      petences of employees, improve transparency and               society, accelerated introduction of the digital go-
                                              •   there is no supervision over the use of public funds                     •   legislative procedure anticipates the assessment of         responsibility, and introduce external performance            vernment concept;
                                                  and work results (achievements, delays, compla-                              the consequences of impacts on individual areas,            assessment and quality supervision procedures;            •   common systems, approaches and standards at the
                                                  ints, commendations), remuneration and the allo-                             which, however, are rarely carried out in practice;       • transfer good practice in EU Member States to the             EU level;
 and analysis of the situation

                                                  cation of funds for human resources;                                         due to political instability and frequent changing of       use of resources in public administration;                    greater awareness of the significance of the simpli-

                                                                                                                                                                                                                                                                                                                                                      and analysis of the situation
                                                                                                                           •                                                                                                                         •
                                              •   unsuitable placement of certain areas, e.g. quality                          governments, too many acts were adopted under             • efficient human resource management is recogni-               fication and elimination of administrative barriers,
                                                  and administrative procedures on the one hand,                               urgent procedures without preliminary analyses,             sed as a strategic objective of the development of            and of quality as a value;
                                                  and project management and processes as a work                               with insufficient inter-ministerial coordination and        public administration;                                    •   improve quality by systematically monitoring user
                                                  method on the other, which cannot systematically                             cooperation with stakeholders;                            • the existing system of officials’ professional compe-         satisfaction with state authority services centrally
                                                  develop with insufficient resources;                                     •   no evaluation procedure of individual policies has          tence standards in public administration is available         carried out by line ministries or authorised outsou-
                                              •   the lack of motivation for changes and poor                                  been systematically introduced;                             as the basis for the competency model for top ma-             rcers (e.g. monitoring the quality of the functioning
R eview

                                                                                                                                                                                                                                                                                                                                                     R eview
                                                  knowledge of the change management tool;                                 •   a high level of legislative burdens and consequen-          nagement;                                                     of common infrastructure);
                                              •   there is no strategy for the operation of public                             tly, discouraging business environment, especially        • suitable remuneration of employees whose effecti-         •   establish a point of single contact by providing full
                                                  administration in terms of efficient use of resou-                           for small and medium-sized enterprises (SME);               veness and efficiency is above average;                       and comprehensive information, and electronic
                                                  rces; there are no systematic approach and mea-                          •   too many regulated activities and occupations, and        • modernise the systemic regulation of the civil ser-           support for the reporting of business entities;
                                                  sures; employees, top management and middle                                  overregulation of EU requirements (gold-plating);           vant system in terms of employee management to            •   reduce the number of regulated occupations and
                                                  management do not have sufficient management                             •   constant institutional changes (e.g. merger of mi-          ensure their better flexibility/mobility and in terms         activities, reduce the number of conditions and op-
                                                  knowledge, i.e. the acquisition and development of                           nistries);                                                  of the responsibility of civil servants for the results       timise procedures;
                                                  knowledge in this field is not carried out in a com-                     •   the preparation of the budget, especially the pro-          of their work;                                            •   better inter-institutional connection of processes
                                                  prehensive and systematic manner;                                            cedures for amending and revising the budget, do          • global changes stimulate employees to enhance                 and electronic exchange of high-quality data from
                                              •   the use of administrative procedural law or indivi-                          not stimulate the most optimal decisions regarding          their professionalism and innovation at workplace,            official records – complete realisation of Article 139
                                                  dual process institutions as administrative barriers                         the implementation of the budget, since there is            and personal development;                                     of the General Administrative Procedure Act (here-
                                                  or redundant costs;                                                          no supervision over the quality of use, and no con-       • open opportunities within the new financial per-              inafter referred to as ‘ZUP’);
                                              •   inefficient organisation and coordination of ICT in                          nection between resources and priority tasks from           spective for smart allocation of EU funds;                •   the ZUP should become (remain) the fundamental
                                                  public administration, strategic documents are unre-                         substantive programmes.                                                                                                   (primary) legal source for the regulation of admini-

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