Assessing the State of Affairs in Public Administration System in Ukraine

On 16 November, 2017 at the Club of the Cabinet of Ministers of Ukraine within the framework of the international conference “Public Administration in Ukraine: Assessing the State of Affairs, Achievements and Challenges” an official opening of the Procedure of Assessing the State of Affairs in Public Administration System with the SIGMA Programme, as it was envisaged by the Action Plan for implementation of the Strategy of Public Administration Reform in Ukraine for 2016-2020, took place.

The results of this assessment will be announced in July, 2018 and allow to update the tasks and activities of the Strategy of Public Administration Reform in Ukraine.

1. Principles of Public Administration

Assessing process will be conducted on the Principles of Public Administration developed by SIGMA Programme.

The Principles:

  • are a framework for public governance – what “good” looks like in practice;
  • are based on the EU acquis, good practice in EU and OECD countries, international standards and requirements;
  • provide a guide for countries for their reforms – Ukraine’s PAR Strategy was designed around the Principles;
  • enable a snapshot of the existing state of play and benchmarking of progress over time.

Use of the Principles so far:

To design and implement reforms:

  • Guidance for PAR and Public Finance Management (PFM) strategies;
  • Benchmark for individual reform projects;
  • Guidelines for strengthening legal frameworks (e.g. civil service laws).

To evaluate current state and progress over time:

  • Baseline measurement assessments.

Dialogue with the EU and other donors e.g.:

  • Formulation of sector budget support indicators.

Areas of the Principles:

1. Strategic framework of public administration reform.

  • Relevance and credibility of the PAR plans;
  • Political leadership and technical coordination;
  • Monitoring of implementation.

2. Policy development and coordination.

  • Appropriate co-ordination at the centre of government;
  • Inter-ministerial coordination;
  • Policy development;
  • Access to legislation.

3. Public service and human resources management.

  • Organisation and functioning of the public service;
  • Merit-based recruitment and promotion;
  • Training and professionalization.

4. Accountability.

  • Organisation and accountability of administration;
  • Access to information;
  • Possibility of administrative and legal redress;
  • Independent oversight.

5. Service delivery.

  • Improving services for citizens and business;
  • Better administrative procedures;
  • E-government services.

The Principles’ framework:

  • 7 key requirements that outline the general characteristics of good public administration;
  • 48 Principles grouped under the key requirements and focused on:

– Implementation and performance of the system in practice;

– Evidence-based monitoring;

Sub-principles, defining more precisely the components that need to be in place.

  • An analytical framework, describing how the Principles can be followed in practice and progress measured, using qualitative and quantitative indicators.

Purpose of the Indicators’ methodology to the Principles:

  • Without knowing the starting point it is hard to decide what needs to be changed;
  • Without analysing progress over time it is impossible to say what has been achieved;
  • Therefore, the purpose is to provide a methodological tool which allows to evaluate their current state of affairs and progress over time.

2. Organization of the Assessment

Roles of Ukrainian authorities in the process:

-   Coordination of the data collection, meetings during fact-finding mission: Secretariat of the Cabinet of Ministers of Ukraine (for all areas), and the National Agency of Ukraine on Civil Service (NAUCS) (for the area Public Service and HRM) - tbc.

-    The Secretariat of the Cabinet of Ministers and NAUCS will introduce answers and data to our data collection system (PAR.IS), but the contribution from your authorities may be required - tbc.

-   What kind of contribution from your authorities?

-   Provision of documents, files;

-   Provision of quantitative data;

-   Providing clarifications, whenever questions arise;

-   Meeting us during the fact-finding mission;

-   Fact-checking of the report.

Main stages of the process

Kick-off

16-17 November 2017:  high level kick-off.

30 November: training on PAR.IS (data collection system) and opening of the PAR.IS for filling in the data.

DCS (data collection sheets) will be prefilled by our local experts (whenever possible).

DCS will be in English. You will receive an Excel file translated into Ukrainian, but answers have to be introduced into the DCS in PAR.IS.

First phase of data collection

End of November 2017 – 22 December: First part of data/answers uploaded into PAR.IS – data, answers that can be uploaded already before the end of the year..

By 2 February 2018 : second part of data/answers uploaded into PAR.IS.

Ideally answers introduced into PAR.IS should be in English. Ideally uploaded docs should be in English. If not possible, please upload documents in Ukrainian, but if possible with the English title of the file.

In DCS, we are using very often two terms::

-   the year prior to the latest full calendar year

-   the latest full calendar year

As the data collection will be finalized in 2018, the year prior to the latest full calendar year means 2016 and the latest full calendar year means 2017.

If data for 2017 is not available, but you have data for 2016, please provide data for 2016 (adding a comment about it). New, more current data can be introduced into the system later (no later than 11 May).

If data is not available, please indicate it. Otherwise we do not know the reason why data was not uploaded. Or inform us that the data will be provided later.

Whenever we ask about personnel files, we need anonymised files.

We ensure that the internal data, like for example: recruitment files, MoF opinions on budgetary impact etc. will not be shared with anyone outside SIGMA and will be only used for analytical purposes.

3. Second part of data collection

Week of 19 February: fact-finding mission to Kiev.

During the fact-finding mission we will be requesting meetings with relevant persons from the public bodies represented by you to:

-   confirm some data that we have received

-   ask for some clarifications

 The more precise answers we before the mission, the less of you time we will take during the fact-finding mission.

4. Fact checking

Week of 2 April: reports sent for fact- checking to UA

By 27 April: reports back from fact-checking.

11 May – a cut-off date. After this date we are not accepting any new data/information.

Fact-checking  is the right timing to provide us with the latest data or with the missing data, if they are available in the meantime.

During the fact-checking, SIGMA be happy to discuss with you draft recommendations.

5. Preparation and checking the report

EndofJune: the report is sent to Ukraine and the EU.

3. Assessment areas and responsible bodies

1. Policy development and coordination  (responsible body- SCMU)

(Involved bodies: SCMU; Government Office for European and Euro-Atlantic Integration;  Apparatus of the Verkhovna Rada of Ukraine; Ministry of Agrarian Policy and Food of Ukraine; Ministry of Economic Development and Trade of Ukraine; Ministry of Social Policy of Ukraine; Ministry of Ecology and Natural Resources of Ukraine; Ministry of Justice of Ukraine ).

2. Public service and human resource management  (responsible body-NAUCS)

(Involved bodies:  National agency of Ukraine on civil service (NAUCS); Ministry of Economic Development and Trade of Ukraine; State Fiscal Service of Ukraine; Pension fund of Ukraine; State Treasury Service of Ukraine;)

3. Accountability  (responsible body- SCMU)

(Involved bodies: Secretariat of the Cabinet of Ministers of Ukraine (SCMU); Ministry of Finance of Ukraine; Ministry of Interior of Ukraine; Ministry of Justice of Ukraine; Ministry of Economic Development and Trade of Ukraine; Ministry of Social Policy of Ukraine; Ministry of Education and Science of Ukraine; Ukrainian Parliament Commissioner for Human Rights; State Judicial Administration of Ukraine)

4. Service delivery (responsible body- SCMU)

(Involved bodies: Ministry of Economic Development and Trade of Ukraine; State Migration Service of Ukraine; Ministry of Interior of Ukraine; State Agency for E-Government of Ukraine;  State Regulatory Service of Ukraine; SCMU; Ministry of Regional Development, Construction, Housing and Communal Services of Ukraine; Ministry of Justice of Ukraine; The State Service of Ukraine for Geodesy,

Cartography & Cadastre; Ministry of Education and Science of Ukraine; Ministry of Health of Ukraine; Ministry of Social Policy of Ukraine,  Ministry of Information Policy of Ukraine).

Work in thePAR.IS

  The PAR.IS (Public Administration Reform Information System) system was created for the providing assessment by the SIGMA programme. PAR.IS was created as inquirer and all involved bodies may fill the necessary information into the system.

PAR.IS – Assessment process:

1) Set up Assessment Project and determine users (SIGMA);

2) Open DCS for prefill (Data Collection Sheets) (SIGMA);

3) Prefill answers to questions in DCS (Local SIGMA experts);

4) Open DCS for country for answering (SIGMA);

5) Verify prefilled information, answer questions in DCS (Government officials);

6) Submit answers in DCS to SIGMA (Government officials);

7) Validate answers (Questions can be reopened)(SIGMA);

8) Assess criteria in AS, submit them to SIGMA (EU Experts);

9) Validate assessments (SIGMA);

10) Prepare Assessment Report (SIGMA);

11) Close Assessment Project (SIGMA).

Providing data and documents is important, as not having the data and information means lower Indicator values. SIGMA is making the analysis based on evidence and, particularly for Indicators, we need the actual evidence in order to give a positive assessment.

Work within the PAR.IS Data Collection System

An electronic data collection system PAR.IS (Public Administration Reform Information System) was created for the assessment by the SIGMA Programme. PAR.IS is an Information System of Public Administration Reform, created in the form of a questionnaire, which should include the necessary information by the authorities involved in assessment process.

Assessment process includes following steps:

1. Set up Assessment Project and Identify the users (SIGMA);

2. Open DCS for prefill (SIGMA);

3. Prefill answers to questions in DCS (Local SIGMA Experts);

4. Open DCS for country for answering (SIGMA);

5. Verify prefilled information, answer questions in DCS (Government officials);

6. Submit answers in DCS to SIGMA (Government officials);

7. Validate answers (Questions can be reopened) (SIGMA);

8. Assess criteria in AS, submit them to SIGMA (EU Experts);

9. Validate assessments (SIGMA);

10. Prepare Assessment Report (SIGMA);

11. Close Assessment Project (SIGMA).

Providing data and documents is important, as not having the data and information means lower Indicator values. SIGMA is making the analysis based on evidence and, particularly for Indicators, we need the actual evidence in order to give a positive assessment.

PAR.IS – In the system

(Access, user credentials, login)

Access:

https://par.is.sigmaweb.org/

Supported browsers: Chrome, Firefox, Internet Explorer

Login: 

  • Username = email address (in all lowercase letters);
  • Password (specified by user).

Before first login you need to activate an account via automatic message. After login you should to press the “Data collection sheet” button. Next you need to choose “Assesment project name” and click on the sign “Ukraine_2018“.

In order to see the questions under a “Principle”, you need to click on the “Principle” in the DCS’s left-hand navigation tree. Clicking on an “Area” will show those questions only that do not belong to any particular Principle, but to the area as a whole. Selecting “Global” questions will show those questions that do not belong to any particular Area, but rather are important to all of them.

There are several types of questions (answers) in the PAR.IS System:

  • Text answer;
  • Radio buttons – typically Yes/No options (only one option allowed);
  • Checkboxes – list of items to check (with more than one option allowed);
  • Number as an answer;
  • Table (Matrix) to fill;
  • Group of questions, question + sub-question structure, conditional (skip logic) question;
  • You can (or are required to) upload attachments, add explanations.

According to the question and user type of the PAR.IS System there are question (answer) statuses:

  • Open for prefill – Opened by SIGMA (light yellow) (seen by SIGMA + Local Expert only);
  • Prefilled – Prefilled by Local Expert (light blue) (seen by SIGMA + Local Expert only, till SIGMA opens for answering);
  • Open for answering – Opened by SIGMA (yellow);
  • Answered (Draft) – Answered by Government Official or colleague (blue);
  • Answered (Submitted) – Submitted by Government Official to SIGMA (light green);
  • Answered (Validated) – Validated by SIGMA (green).

Answer a question

There is No “Save” button! Click into the next question or outside the question area to save!

Answer a question – Upload attachment

Use the “Browse” button to select your file! Don’t use Drag-and-drop!

The names of files that you upload must be unique (no identical filenames allowed)!

No “Upload” button! Click into the next question or outside the question area to upload)!

The system also provides for the possibility to send a question to a colleague. For this you need to click on the blue button located in the upper right corner of the screen, below under the username. After that, a dialog box will appear in which you need to place a check mark next to the questions you would like to send. Next, you need to click on the "Next" button, then click the “Send email” button.

Your colleagues will become anonymous (non-registered) users, and will see those question(s) only to which you send the link to them. There is no “Save” button for them, either. They also need to click away from the question to save their answer. You will see their answer in the system.

When you are happy with an answer, you need to submit it to SIGMA. You cannot edit a submitted answer. If you want to change it, ask your Country Coordinator to reopen the question for you. 

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