Karen Hill, presentation,SIGMA Bilateral Event,Principles of Public Administration, Baku, Azerbaijan, 24 November 2016
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Presentation by Karen Hill, Head of SIGMA, at the SIGMA Bilateral Event on the Principles of Public Administration and their use for public administration reform in Azerbaijan. This event was hosted by Center for Analysis of Economic Reforms and Communication of Azerbaijan on 24 November 2016 in Baku, Azerbaijan.
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Karen Hill, presentation,SIGMA Bilateral Event,Principles of Public Administration, Baku, Azerbaijan, 24 November 2016
- 1. © OECD AjointinitiativeoftheOECDandtheEuropeanUnion, principallyfinancedbytheEU The Principles Of Public Administration: A Framework For Reform Karen HILL Head of SIGMA Programme The Principles of Public Administration and their use for public administration reform in Azerbaijan Baku, Azerbaijan, 24 November 2016
- 2. AjointinitiativeoftheOECDandtheEuropeanUnion, principallyfinancedbytheEU SIGMA = 25 years working together to improve public administrations 1
- 3. AjointinitiativeoftheOECDandtheEuropeanUnion, principallyfinancedbytheEU What do we do? • Long-term perspective • Short-term technical assistance that complements other EU institution building instruments e.g.: • Support in preparing strategies and reform plans • Assistance on drafting and amending laws • Advice on planning larger technical assistance projects • Awareness raising events • Advising key senior and middle managers • Practitioner-to-practitioner support, also through regional events • Peer reviews of specific systems or organisations • In the EU accession countries, annual assessments on governance systems and reforms • In addition, policy papers and studies on public governance • And we have developed ….. 2
- 5. AjointinitiativeoftheOECDandtheEuropeanUnion, principallyfinancedbytheEU Reasons for the Principles • Each country has its own priorities for public policies, which change over time • For a government to deliver on its priorities, good public administration is a key success factor • A comprehensive, holistic and cross-sectoral framework was needed to define good public administration and support reforms in different countries • The Principles provide a complete conceptual framework for good public administration and public governance 4
- 6. AjointinitiativeoftheOECDandtheEuropeanUnion, principallyfinancedbytheEU Aim and focus of Principles • SIGMA has been working with partner countries for almost 25 years, including countries now EU member states and contributing valuable reform experience • Derived from EU and OECD requirements, international standards and good practice • A guide for countries in their own reform processes and an analytical framework for benchmarking of performance and progress • The Principles comprise only key requirements for horizontal aspects of good governance and allow for their flexible implementation
- 7. AjointinitiativeoftheOECDandtheEuropeanUnion, principallyfinancedbytheEU Six core areas of a comprehensive framework 6 Policy development and co-ordination Public service and human resource management Accountability Service delivery Public financial management Strategic framework of public administration reform
- 8. AjointinitiativeoftheOECDandtheEuropeanUnion, principallyfinancedbytheEU Strategic framework for public administration reform An administration focused on constantly improving its own functioning 7
- 9. AjointinitiativeoftheOECDandtheEuropeanUnion, principallyfinancedbytheEU Policy Development and Co-ordination: example of a Principle 8
- 10. AjointinitiativeoftheOECDandtheEuropeanUnion, principallyfinancedbytheEU Public service and human resource management People with the skills and knowledge to get things done 9
- 11. AjointinitiativeoftheOECDandtheEuropeanUnion, principallyfinancedbytheEU Accountability An administration that explains publicly, fully and fairly how it is carrying out responsibilities that affect the public in important ways. 10
- 12. AjointinitiativeoftheOECDandtheEuropeanUnion, principallyfinancedbytheEU Service delivery Good, accessible public services for citizens 11
- 13. AjointinitiativeoftheOECDandtheEuropeanUnion, principallyfinancedbytheEU Public financial management Using money wisely – financial and budgetary management, public procurement, external audit 12
- 14. AjointinitiativeoftheOECDandtheEuropeanUnion, principallyfinancedbytheEU Cross-sectoral framework The Principles apply to everything that government does: • All sectors and policies (economic, health, education, security, employment …) • Implementation of policies to achieve the government’s objectives • The building blocks for good public administration 13
- 15. AjointinitiativeoftheOECDandtheEuropeanUnion, principallyfinancedbytheEU Structure of the Principles I. For each of the six core areas there are: • Key requirements • Principles • Sub-principles 2. Methodological annex: • Methodological approach • Indicators • Information sources 14
- 16. AjointinitiativeoftheOECDandtheEuropeanUnion, principallyfinancedbytheEU Successful use of Principles so far Evaluation of current state and progress over time: • Baseline measurement and assessments Design and implementation of reforms: • Guidance for public administration reform (PAR) and public financial management (PFM) • Benchmarks for individual reform projects • Guidelines for strengthening legal frameworks (e.g. civil service laws) Dialogue with EU and other partners e.g. about priorities and support for reform initiatives 15
- 17. AjointinitiativeoftheOECDandtheEuropeanUnion, principallyfinancedbytheEU Use of the Principles in European Neighbourhood Countries Each country can use: • Full set • One core area • One sub-area • One or several Principles • One or several sub-principles • One or several indicators • Any combination of the above 16
- 18. AjointinitiativeoftheOECDandtheEuropeanUnion, principallyfinancedbytheEU Use of the Principles and the European Neighbourhood Policy The Principles can facilitate dialogue with the EU and other donors, helping to: • Steer dialogue on public administration reforms • Define indicators for sector budget support • Inform discussions on sectoral programmes • Mainstream public sector-related projects 17
- 19. AjointinitiativeoftheOECDandtheEuropeanUnion, principallyfinancedbytheEU Thank you for your attention! More information can be found at: www.sigmaweb.org 18
Editor's Notes
- Before going into the presentation of the Principles itself: let me give you a little background about the reasons for developing those: Each country has its own priorities for public policies which necessarily change over time. I guess we all agree, that for a government to deliver on its priorities, good public administration is a key success factor no matter what policy area is being addressed. However, I’m sure that we would get many different responses from participants here in the room to the question of what good administration actually is. How does it look, what are its characteristics? What are the different areas that need to be covered? We therefore realised together with our colleagues from the EC, that a comprehensive, holistic and cross-sectoral framework was needed to define good public administration and to support reforms in different countries Because PAR is more than only Civil Service reform and PAR is more than only adopting new laws. The Principles for Public Administration – A Framework for ENP countries, provide you now with a complete conceptual framework for Public Administration Reform.
- Let me now briefly explain what makes the Principles a Comprehensive Framework: The framework describes the six core public management systems that make up an efficient public administration And those are : Policy development and co-ordination Public service and human resource management Accountability Service delivery and Public financial management Plus as an area that brings all of the other areas together when it comes to the strategic framework of PAR
- Last but not least, the area of strategic framework for public administration reform is about an administration that focuses on constantly improving its own functioning This area describes how the government should deal with a complex area of reforms to modernise public governance – it focuses on the characteristics of a good reform plan, political and administrative co-ordination, monitoring and evaluation.
- For the area of Policy Development and co-ordination, I would like to talk you briefly through one of the Principles as an example: It is Principle 7 of this score area and it says that : Policies and legislation are designed in an inclusive manner that enables the active participation of society and allows for co-ordinating perspectives within the administration. This is further defined in the 6 subprinciples: It is required that Procedures are in place to enable effective public consultation, and these are consistently applied across ministries, allowing non-governmental organisations and citizens to influence policy formulation. There is a proactive approach to empowering citizens, in particular women, in decision making. 2. Opportunities for comment and involvement by stakeholders are timed to enable genuine dialogue and the potential to affect policy development, with clear information provided to consultees on the issues and questions at stake. 3. Responsible state institutions have sufficient time and resources to analyse and use consultees’ responses. 4. The procedures and structures for consultation on proposals between key state institutions operate effectively and address both the process and substantive matters. 5. The lead state institution reports on the outcome of inter-institutional consultation as part of the documentation accompanying policy proposals and legislation submitted for decision. 6. Inter-institutional conflict-resolution mechanisms are built into the decision-making process at both the administrative and political levels to ensure stakeholders’ access, to fully utilise the administration’s expertise, and to enable optimal conflict resolution before the issue is discussed and decided by the decision makers.
- The area of public services and human resource management is about people with the skills and knowledge to get things done. This areas focusses on all aspects of HRM in the public sector, starting from the scope of the public service, covering merit based recruitment and promotions, remuneration systems, professional development, as well as integrity issues. In the Principles, this core area is divided into two sub-areas: one is policy and legal and institutional framework for public service and the second HRM
- Accountability is about an administration that allows citizens to get things done for their benefit. In this area we are looking for a rational public administration organisation, reasonable access to public information and the possibility for administrative and legal redress in case public authorities have made erroneous decisions against individuals or companies.
- Service delivery is about good, accessible public services for citizens and businesses. This area covers good administrative procedures, equal access to public services and easy to use e-services.
- The area of PFM aims to make sure that the public administration uses public money wisely. PFM covers budgetary procedures that keep public finances on a sustainable path, proper internal control and public procurement to ensure value for money and regular oversight by an independent external audit. In the Principles this is the largest core area that is divided into 4 subareas which are budget management, internal control and audit, public procurement and external audit
- Slowly!!! Why do these Principles can help all of us with our reform efforts? First of all, because the Principles provide a Cross-sectoral Framework, as they apply to everything that government is doing: They apply to all sector policies, because those policies only can be realised successfully by a strong and well performing PA. By defining what PA entails, they describe what is needed to implement any policy. With the different areas that they cover and the different perspectives that they offer, they provide the building blocks for good PA.
- We have shared with you 2 different documents: first a short Brochure that we call the “Overview” and that presents briefly only the Principles and gives some examples of indicators. This is intended to provide the busy reader (like you minister) with a first impression of what the Principles are about. 2. We have then share a bigger publication that describes, for each of the Six core areas and sub-areas (that I will explain in a minute): The key requirements, the Principles and the sub-principles. Now please bare with me ., this might sound a bit dense when you hear it he first time, but it is important: - the key requirements summarise the principles in one sentence for each core area or sub-area - the Principles describe each main element that has to exist in order to ensure that the key requirement is fulfilled - the sub-principles define in more detail what is needed to fulfil the principle that they belong to 3. But the full framework of the Principles also includes a third document, which has not yet been distributed and is called the Methodological Annex. The Methodological Annex provides and explains quantitative and qualitative indicators and necessary information sources to measure to what extent a principle is met. The reason for not distributing this part of the framework for the conference is that we are currently in the process of revising the indicators. My colleague Keit will present this part of the framework to you later .
- The Principles for PA: A Framework for ENP Countries have just been finalised and you are the first ones to see them outside of the OECD and the EC. However, a similar framework has been successfully used by EU Enlargement countries for 2 years in different ways: Over the past 2 years, it has proved to be a useful tool for the design and implementation of reforms: - it has provided guidance for numerous PAR and PFM strategies and plans in EU Enlargement countries - it has been a benchmark for individual reform projects, e.g.: Jordan uses an early version of the principles as benchmark for a specific activity in the MoSPD to measure governance performance. In Ukraine, the Principles serve as Guidelines and benchmarks for strengthening the Civil Service Law. 2. The framework has been used successfully also as a tool for evaluation of the current state of affairs and progress over time: - On the request of the EC, for example SIGMA has done a so called Baseline Measurement in all EU Enlargement countries - On the request of the Moldovan prime minister an Assessment has been carried out and will be presented to the government this week. 3. The framework also has already proved to be really useful in the Dialogue with EU, e.g. Several EU Enlargement countries have used indicators of the Methodological Annex to formulate some of the Sector Budget Support Indicators.
- We hope that the Principles can help you in your own country to define necessary areas of reform and to define what exactly needs to be done. To this effect it is the decision of each country how to use this framework. We like to think of the Framework as a Restaurant Menu: you can chose from it and take what you like. This can be a full seven course meal or just and apéritif. It depensds on your countries current needs: For example, you can chose The Full set for designing a comprehensive PAR strategy One core area: design a PFM strategy One or several principles: e.g. drafting/amending a key law, civil service law, budget law, etc One or several indicators: e.g. define indicators for PAR or PFM strategies Any Other combination of the above
- The Principles also can facilitate the dialogue with the EU and other donors to help - Steer dialogue on public administration reforms - Define indicators for sector budget support - Steer dialogue on sectoral programmes Mainstream public sector related projects And as I said before: it has already helped your colleagues in other countries. I have come to the end of my part of the presentation. Thank you very much for listening. I am looking forward to continue working with you hopefully on the basis of the Principles that I have just presented. I would like to now give the floor to my colleague, Keit to explain how the Principles can help to monitor Progress over time and - continuous improvement. Keit, the floor is yours!