Österreich 2006 Präsidentschaft der Europäischen UnionAustria 2006 Presidency of the European UnionAutriche 2006 Présidence de L‘Union européenne
slide 1
46th Meeting of Directors General 46th Meeting of Directors General responsible for Public Administrationresponsible for Public Administration
Vienna, 29th May 2006Vienna, 29th May 2006
Decentralisation and AccountabilityDecentralisation and Accountabilityas Focus of Public Administration Modernisationas Focus of Public Administration Modernisation
A Comparative European Perspective A Comparative European Perspective
Christoph DemmkeChristoph DemmkeGerhard Hammerschmid Gerhard Hammerschmid
Renate MeyerRenate Meyer
slide 246th Meeting of Directors General, Vienna 2006 slide [email protected]; [email protected]; [email protected]
Context and Relevance of the SurveyContext and Relevance of the Survey • Decentralisation and accountability as main trends
of PA modernisation• Central Survey Questions:
1. Is there a common reform agenda?2. Is there a trend towards HR decentralisation and
individualisation? 3. Which HR issues are centralised/ decentralised? 4. What is the role and involvement of different actors?5. Does decentralisation lead to accountability problems?6. What are the implications for the PAs?
slide 346th Meeting of Directors General, Vienna 2006 slide [email protected]; [email protected]; [email protected]
Main Drivers for PA ModernisationMain Drivers for PA Modernisation
Considerable variations between public administration traditions Little relevance of country size and HR system
technological developmentscitizen demandsp.a. top executivesp.a. employeesstaff representatives / unionspolitical partiespublic in general /mediaprivate sectorother interest groupssupranational organisations
very low1 2 3 4very strong
economic situation / budgetEU legislation / integrationnational parliament / legislationsocio-demogr. developments
Scand.
Scand. Transition
Continental
TransitionContin./Transition
Mediterr.Mediterr.
Scand.Anglo.
Anglo.Anglo.
Mediterr.
Mediterr.Contin.
Transition
Mediterr.
technological developmentscitizen demandsp.a. top executivesp.a. employeesstaff representatives / unionspolitical partiespublic in general /mediaprivate sectorother interest groupssupranational organisations
very low1 2 3 4very strong
economic situation / budgetEU legislation / integrationnational parliament / legislationsocio-demogr. developments
Scand.
Scand. Transition
Continental
TransitionContin./Transition
Mediterr.Mediterr.Mediterr.Mediterr.
Scand.Anglo.
Anglo.Anglo.
Mediterr.Mediterr.
Mediterr.Mediterr.Contin.
Transition
Mediterr.
EC
EC
slide 446th Meeting of Directors General, Vienna 2006 slide [email protected]; [email protected]; [email protected]
administrative decentralisationpolitical decentralisationstrengthening accountabilitystrengthening policy coherencequality managementaligning public-private employm.HR decentralisationbudget decentralisationperformance managementopen governmentcustomer orientationethics / codes of conducte-governmentpublic-public partnershipsprivate sector involvement
relativelylow influence1 2 3 4
very high influence
new public managementgood governanceuse of market-type mechanismsausterity/saving programmes
Anglo./Scand.
Scand./Anglo.Continental/Transition
Anglo. smallScand. small
Continental smallAnglo.
Scand. ContinentalScand. small/Anglo.Scand. small/Mediterr.
Scand. ContinentalContinental
Scand.Anglo.
Scand.Anglo. Continental
Mediterr./ContinentalAnglo.
Mediterr.
Transition
administrative decentralisationpolitical decentralisationstrengthening accountabilitystrengthening policy coherencequality managementaligning public-private employm.HR decentralisationbudget decentralisationperformance managementopen governmentcustomer orientationethics / codes of conducte-governmentpublic-public partnershipsprivate sector involvement
relativelylow influence1 2 3 4
very high influence
new public managementgood governanceuse of market-type mechanismsausterity/saving programmes
Anglo./Scand.
Scand./Anglo.Continental/Transition
Anglo. smallScand. small
Continental smallAnglo.
Scand. ContinentalScand. small/Anglo.Scand. small/Mediterr.
Scand. ContinentalContinental
Scand.Anglo.
Scand.Anglo. Continental
Mediterr./ContinentalAnglo.
Mediterr.
Transition
Diversity of PA Modernisation Diversity of PA Modernisation TopicsTopics
slide 546th Meeting of Directors General, Vienna 2006 slide [email protected]; [email protected]; [email protected]
Decentralisation – A Multifaceted ConceptDecentralisation – A Multifaceted Concept• Organisational/managerial decentralisation (“agencies”)
eg. Austria, EC, Estonia, Finland, Italy, Malta, Netherlands, Sweden, UK
• Legal and political (multi-level) decentralisation eg. Austria, Belgium, France, Germany, Italy, Slovakia, Spain
• Budgetary decentralisation eg. EC, France, Sweden
• HR decentralisation– from government-wide HR unit to single ministries/agencies
eg. Austria, EC, Hungary, Ireland, Malta, Poland, Spain, Sweden, UK– increasing amount of discretion given to line managers
eg. Belgium, Denmark, France, Italy, Sweden– regional eg. Greece, Ireland, Sweden
Many good practices proposed in the study allowing diverse solutions fitting best the specific context
slide 646th Meeting of Directors General, Vienna 2006 slide [email protected]; [email protected]; [email protected]
Netherlands
Latvia
SlovakiaGreece
Sweden
UK
GermanyFrance
Slovenia
AustriaCyprusBelgium
Spain
Luxembourg
MaltaEstonia
Finland
HungaryDenmark
Ireland
Lithuania
EC
Portugal
Romania
Italy Czech Rep.
BulgariaPoland
0,0
0,1
0,2
0,3
0,4
0,5
0,6
-1,0 -0,8 -0,6 -0,4 -0,2 0,0 0,2 0,4 0,6 0,8 1,0
highly central highly decentral
Higher Management Autonomy GoesHigher Management Autonomy GoesHand in Hand with Higher Multi-Actor InvolvementHand in Hand with Higher Multi-Actor Involvement
low multi-actor involvement
high multi-actor involvement
slide 746th Meeting of Directors General, Vienna 2006 slide [email protected]; [email protected]; [email protected]
Scandinavian
Anglo-Saxonposition-based
mediumMediterranean
career-basedTransition
Continental
largesmall
Balticother Transition
0,0
0,1
0,2
0,3
0,4
0,5
0,6
-1,0 -0,8 -0,6 -0,4 -0,2 0,0 0,2 0,4 0,6 0,8 1,0
highly decentral
HR System and PA Tradition MatterHR System and PA Tradition Matter Size Does NotSize Does Not
highly central low multi-actor involvement
high multi-actor involvement
slide 846th Meeting of Directors General, Vienna 2006 slide [email protected]; [email protected]; [email protected]
Centralised and Decentralised HR IssuesCentralised and Decentralised HR Issuescentralised decentralised
-0,7 -0,6 -0,5 -0,4 -0,3 -0,2 -0,1 0,0
recruitment of a line manager
determination of fixed salaries
PRP
public procurement (25000 Euro)
training / development
performance management
codes of conduct and ethical norms
disciplinary procedure
employee dismissal
line manager promotion
changing working time
altering task responsibilities
teleworking
head count reduction
relocating staff due to structural changes
slide 946th Meeting of Directors General, Vienna 2006 slide [email protected]; [email protected]; [email protected]
Involvement of Line/Agency Management andInvolvement of Line/Agency Management andTrade Unions/Staff Representatives Trade Unions/Staff Representatives
line / agency management trade unions / staff representatives
high level of involvement:• performance management• performance related pay• training and development• disciplinary decisions
high level of involvement: • fixed salaries • dismissal of employees• head count reductions• working time issues
Continental
Transition
Mediterranean
Anglo-Saxon
Scandinavian
other Transition
Baltic
position based
career based
0,0 0,2 0,4 0,6 0,8 1,0
low involvement high involvement
Continental
Transition
Mediterranean
Anglo-Saxon
Scandinavian
other Transition
Baltic
position based
career based
0,0 0,2 0,4 0,6 0,8 1,0
low involvement high involvement
slide 1046th Meeting of Directors General, Vienna 2006 slide [email protected]; [email protected]; [email protected]
0,0 0,1 0,2 0,3 0,4 0,5 0,6 0,7 0,8 0,9 1,0
AustriaBelgiumBulgariaCyprusCzechiaDenmarkEstoniaFinlandFrance
GermanyGreeceHungaryIreland
ItalyLatvia
LithuaniaLuxembourg
MaltaNetherlands
PolandPortugalRomaniaSlovakiaSlovenia
SpainSweden
UKEC
in % of questions answered
Degree of Involvement of Government-wide HR Units
slide 1146th Meeting of Directors General, Vienna 2006 slide [email protected]; [email protected]; [email protected]
• Central unit government-wide
generally strong:– codes of conduct/ethical norms– fixed salaries– head count reductions
generally low:– disciplinary procedures– teleworking – public procurement
lower in Scandinavian and Baltic countries
lower in position-based HR systems
Involvement of Central UnitsInvolvement of Central Units
• Central unit ministry-wide
generally strong:– new line manager recruitment– training and development – disciplinary procedures– employee dismissal – altering task responsibilities– teleworking – headcount reductions – relocating staff
stronger in Continental, Anglo-Saxon and Scandinavian Countries
stronger in position-based HR systems
slide 1246th Meeting of Directors General, Vienna 2006 slide [email protected]; [email protected]; [email protected]
Interrelationship between Interrelationship between Decentralisation and Accountability Decentralisation and Accountability
• General agreement on positive impact of (HR)decentralisation
• Broad spectrum of tools to balance possible side-effects• Decentralisation requires creation of new coordination
and accountability structures • Performance and external accountability on the rise• Traditional forms of political, hierarchical and ministerial
accountability are still the dominating forms • A broad spectrum of reform initiatives to strengthen
accountability
slide 1346th Meeting of Directors General, Vienna 2006 slide [email protected]; [email protected]; [email protected]
Reform Initiatives to Strengthen Accountability and Policy Coherence
• Performance Management eg. Austria, Finland, Germany, Ireland, Italy, Malta, Portugal, UK
• Changes in Legislation eg. Czech Republic, Germany, Hungary, Latvia, Poland, Romania, Slovakia
• Budget Management and IT eg. Austria, Bulgaria, Cyprus, EC, Finland, France
• Soft Coordination and Networking eg. Belgium, Cyprus, EC, Germany, Ireland, Lativa, Poland
• Increased Transparency eg. EC, Finland, Greece, Ireland, Romania, Sweden
Different emphasis depending on HR system, type of accountability and PA tradition
slide 1446th Meeting of Directors General, Vienna 2006 slide [email protected]; [email protected]; [email protected]
Consequences and Challenges Consequences and Challenges • Ongoing challenge to balance
– Decentralisation and centralisation– (De)centralisation and accountability
• Increasingly strategic role of central HR units• Need to strengthen both management competencies and
responsibility/accountability • Need to design strategies how to equip managers with
the necessary skills and to enable them to carry out new responsibilities (leadership training)
• Exchanging good practices concerning the involvement of different actors in HR decisions
• Need to avoid additional bureaucracy and burden close observation of relationship between HR decentralisation, accountability and a new performance management bureaucracy
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