Civil Service Reform in Post-Communist Countries

Transcription

1 Civil Service Reform in Post-Communist Countries

2 Cover design: Maedium, Utrecht ISBN e-isbn NUR 740 A. Kotchegura / Leiden University Press, 2008 All rights reserved. Without limiting the rights under copyright reserved above, no part of this book may be reproduced, stored in or introduced into a retrieval system, or transmitted, in any form or by any means (electronic, mechanical, photocopying, recording or otherwise) without the written permission of both the copyright owner and the author of the book.

3 Civil Service Reform in Post-Communist Countries The Case of the Russian Federation and the Czech Republic PROEFSCHRIFT ter verkrijging van de graad van Doctor aan de Universiteit Leiden, op gezag van de Rector Magnificus prof.mr. P.F. van der Heijden, volgens besluit van het College voor Promoties te verdedigen op woensdag 19 November 2008 klokke uur door Alexander Kotchegura geboren te Magdeburg, in 1956

4 Promotiecommissie Promotor: Prof. A.J.G.M. Bekke Co-promotor: Dr. F.M. van der Meer Referent: Prof. J.C.N. Raadschelders (Oklahoma University) Overige leden: Jhr. Dr. F.K.M. van Nispen tot Pannerden (Erasmusuniversiteit Rotterdam) Prof. Dr. M.R. Rutgers Prof. Dr. Th.A.J. Toonen

5 Contents Acknowledgements 10 CHAPTER I INTRODUCTION Transformation of the state and public sector reforms in Central 11 and Eastern Europe 1.2 Civil service reform: international and regional context Rationale for the selection of cases Objective, research questions and structure of the study Sources of information and data and related constraints 16 CHAPTER II COMPARISON OF CIVIL SERVICE REFORMS: ISSUES OF THEORY AND METHODOLOGY Introduction Theoretical and methodological approaches in comparative public administration Administrative science status and prospects Developing methodological approaches in administrative research Comparative studies in public administration Institutional concept and institutional approach Protocol for comparative studies Significance of historical legacy, traditions, behavioural patterns and political setting Defining variables and structure of the study Civil service reform - definition, dimensions, problems Contemporary views on civil service reform Civil service reform dimensions and outcomes Peculiarities of post-communist administrative development Assertions and hypothesis Defining principal terms and concepts Conclusions 41 CHAPTER III THE RUSSIAN CIVIL SERVICE: EVOLUTION, STATUS AND REFORM CAPACITY Introduction 43 5

6 3.2 Evolution of the Russian state and its administration Constitutional framework Political system Economic situation Privatisation Legal framework Central government Civil service: status, efficiency and institutional framework Civil service management Relations between civil servants and politicians Human resource management Payment and incentive policy Education and training Societal and administrative traditions, values and culture Accountability and responsibility Ethical standards and corruption Assessment of available resources Civil service and civil society Conclusions 73 CHAPTER IV REFORM OF THE RUSSIAN CIVIL SERVICE: WHO WILL WIN THIS TIME BUREAUCRACY OR POLITICIANS? Introduction Pressure for change Preparation for reform Reform driving forces Reform preparation and implementation stages Civil service law from Concept of civil service reform Programme of civil service reform Reform preparation and implementation milestones Reform implementation and management New civil service legislation Administrative reform Impact of external diffusion and assistance Assessment of civil service reform progress and mid-term results Assessment of administrative reform progress Conclusions 100 6

7 CHAPTER V THE CZECH CIVIL SERVICE: HISTORICAL LEGACY, CURRENT SITUATION AND CAPACITY FOR REFORM Introduction The Czech state and its administration historical overview Constitutional framework Political system Economic situation Privatisation and its implications Legal framework Central government Civil service status, efficiency and institutional setting Civil service management Relations politicians - civil servants Human resource management Pay and incentive mechanism Education and training Accountability and responsibility Ethical standards and corruption Societal and administrative traditions and values Civil service and civil society Capacity and resources Conclusions 124 CHAPTER VI REFORM OF THE CZECH CIVIL SERVICE: INTERNAL IMPERATIVE OR EXTERNAL PRESSURE? Introduction Preparation of civil service reform NTF report Civil service reform preparation and implementation stages Political leadership and reform Civil service Act Accession to EU and its impact Assessment made by European Commission and OECD Civil service reform preparation and implementation milestones Concept of public administration reform Reform programme Management of preparation and implementation of civil service reform Reform diffusion and external assistance Assessment of reform implementation and current results 144 7

8 6.15 Conclusions 148 CHAPTER VII COMPARATIVE ANALYSIS OF CIVIL SERVICE SYSTEMS IN THE RUSSIAN FEDERATION AND THE CZECH REPUBLIC: IS THERE MORE DIFFERENCES OR SIMILARITIES? Introduction Czech and Russian civil services: selected features according to the Protocol of comparative studies Internal labour market Job definition and classification system CzR Job definition and classification system RF Deployment rules CzR Deployment rules RF Job security and membership rules CzR Job security and membership rules RF Reward mechanism CzR Reward mechanism RF Representativeness Demographic representation CzR Demographic representation RF Equal opportunity CzR Equal opportunity RF Interest representation CzR Interest representation RF Accountability CzR Accountability RF Politicisation Politicisation CzR Politicisation RF Public opinion Public opinion CzR Public opinion RF Conclusions 174 CHAPTER VIII COMPARATIVE ANALYSIS OF CIVIL SERVICE REFORMS IN THE RUSSIAN FEDERATION AND THE CZECH REPUBLIC: DIMENSIONS, DYNAMICS AND EXPLANATORY FACTORS Introduction Intra bureaucracy factors Resistance of the bureaucracy 177 8

9 8.2.2 Problems of reform management Goal displacement and mislaid priorities Inadequate preparation of reform Corruption Clientelism and patronage Mentality and administrative culture Extra bureaucracy factors Politicization of civil service Lack of political will Budgetary constrains and new opportunities Constrained political competition Alienation of citizens and weak civil society Historical legacy Constitutional setting Political framework Economic environment Impact of diffusion Matching civil service reform Reform capacity Reform implementation Reform outputs Two civil service reforms in mirror comparison Key variables and determining factors Conclusions 216 CHAPTER IX FINDINGS AND CONCLUSIONS 9.1 Introduction Current reform results and explanatory factors Major findings of the research Theoretical conclusions and implications 230 Bibliography 233 Summary 245 Samenvatting 250 Curriculum Vitae 256 Annexes 257 9

10 Acknowledgements The preparation and publication of this study would have not been possible without invaluable contributions made by a number of people. I would like to express my gratitude to many colleagues from the Department of Public Administration of the Faculty of Social and Behavioural Sciences of Leiden University, who shared their academic and scientific knowledge, skills and experience with me and provided recommendations on improving the work done. I also thank colleagues from my home university who supported me throughout all the research and whose advice and assistance are highly appreciated. This PhD research was a difficult but rewarding experience. My wife Julia, my daughter Ann and my son Vladislav, who was born while I was in the midst of my research activities, have been a source of encouragement and inspiration for me and I would like to express my gratitude for the support they provided. A.K. August