Improving the functioning standard of public institutions and development of partnership

Diagnosis of the situation in the scope of labour standard and ability to implementing elementary tasks of the Polish institutional and regulative system indicates the necessity of a fundamental modern− isation of the way in which state institutions are functioning, including administration and the justiciary sector and development of social dialogue and partnership. As was shown by experience gained by many countries, a change in the method of ruling a country, stimulating dialogue with social and eco−

may allow achieving results such as enhancing possibilities of creating development strategies and their effective execution, implementation of effective management methods, more effective usage of human resources in the public sector and endogenic potential of states and regions. Measures undertaken to improve the management standard should allow additional effects such as bigger involvement of the society in growth processes and increased satisfaction level of the society, including the feeling of safety.

Measures in support of enhancing the administrative potential in Poland are first of all aimed at preparation of the Polish administration to execution of its basic role, and namely creating conditions for social and economic growth of Poland. In this respect an issue of fundamental importance is enhancing abilities of working out and enforcing long−term strategies and programmes, respecting the partnership rule. This objective is coherent with objectives of the Lisbon Strategy which postulate better develop− ment of policies and their execution to allow establishing conditions for growth and jobs. This is trans− posed to CSG, which indicate that effective administrative capabilities of the member states are an indispensable condition for inland and EU growth and jobs. The main provision of the reform in the public sphere it having it based on modern standards of ruling, i.e. the principle of subsidiarity, partner− ship and civil dialogue. Execution of this type of measures is connected with enforcement of good governance principles, comprehended as efficient and partnership based on ruling with the application of openness, responsibility, effectiveness and cohesion principle, which is also of fundamental impor− tance for actual execution of the national growth strategy, including provisions of NSRF. Such under− standing of governance complies to CSG, which assume support for public−private dialogue, as well as the implementation of open government rules. This is reflected in the content of CSG Guideline No. 1.3.4 – Administrative Capacity.

Enhancing abilities of public institutions to efficient and effective execution of tasks

The establishment of appropriate conditions for social and economic development in Poland requires improvement of the standard of created legal acts, public policies and programmes, improving institutional effectiveness of public administration, improving the standard and accessibility of public services and better professional qualifications of the clerical staff. The assumed support spheres con− form to CSG, which assume support for development of effective policy and its enforcement, as well as improving the clarity and effectiveness of functioning of the public services. Furthermore, the planned investments in improvement of qualifications and abilities of the clerical staff that accompany processes of enhancing administrative abilities may be included in general provisions of the Community guideline related to a bigger number of better work places.

Support for the processes of development and implementation of policies and programmes will be executed through modernisation of the organisation method of those processes, including especially enhancing cooperation and coordination between public administration units and through enhancing abilities of programming, monitoring, implementation and evaluation of development policies, directed at achieving concrete measurable targets connected with objectives of the Lisbon Strategy and the European cohesion policy. Support in this scope is strictly correlated with improving the standard and accessibility of public services, which for the citizens are a visible effect of implementation and enforce− ment by the administration of legal regulations, assumed policies and programmes. The issue of improvement of public services standard is especially important for execution of subsidiary role of administration, and as a consequence contributes to changing the perception of the Polish administration, as well as the clerks by the citizens. Measures connected with improving the quality of client services by the public administration are not only covered by Guideline 1.3.4 of the CSG.

An element necessary for improvement of functioning effectiveness of public administration is informatisation of the administration authorities, which is expected to rationalised operation of public administration, as well as enhancing accessibility and quality of public services. Efficient and effective

implementation of public tasks and also easy access to public information leads as a consequence to reduced administrative barriers for business operation of entrepreneurs, as well as to facilitating and hastening the information flow between various administration levels and the customer. Operations connected with enhancing functioning effectiveness of administrative authorities through their informa− tisation are not only covered by the scope of Guideline 1.3.4. CSG, but also in Guideline 1.2.3. Promote the information society for all.

Processes that take place in administration, including especially the execution of policies and pro− grammes, may not be executed in an efficient and effective way without well functioning institutions involved in management and implementation of public policies and programmes. Effectively functioning institutions make use of available resources in an optimum way, hence preventing manipulation, wast− age of public resources, or delays in execution of tasks. Enhancing the institutional effectiveness shall be achieved through modernisation of management processes in public administration, including first of all the implementation of a universal management system by objectives and results. Among processes that take place in public administration i.e. process, finance, risk and information management; worthy of particular attention is human resources management, because it affects not only institutional efficien− cy, but also the quality of employed staff and the effects of their work.

A particularly important element in establishing appropriate administrative potential are invest− ments in the human capital involved in processes of development, implementation, monitoring and evaluation of public policies and programmes and providing public services. Taking into consideration problems encountered by the Polish administration, connected with large rotation, especially among younger staff, lack of desired qualifications and no suitable motivation schemes, the Polish administra− tion will to a large extent require intensified investments in development of abilities and knowledge of clerical staff through development of appropriate programmes for training and life long learning, as well as continuation of introduction of civil service standards in self−government administration, lasting shap− ing and strengthening of ethical attitudes.

As requirements of Community guidelines impose taking into consideration specific situation and problems of member states to allow most effective counteracting barriers for growth and jobs, measures in Poland would be focused fist of all on support for development and implementation of modern system solutions that rationalise the functioning of public administration on all levels of the territorial division. This requires making a review of administrative structures, an audit of public administration functioning and as an effect development of a diagnosis for its condition, and for its potential as well. This would enable appropriate identification of tools and instruments in response to needs of the sector and use in achievement of a qualitative change of functioning of public institutions. The cohesion policy is to sup− port horizontal tasks for enhancing administrative capabilities in Poland addressed at all public adminis− tration units in Poland comprising in its scope government and self−government administration entities. In addition, the execution of planned measures of a horizontal nature would take into consideration special needs of administrative units in areas that require intensified support, which comprise the judiciary sector and health service, the reform of which would to the greatest extent contribute to better functioning of the state.

Strengthening partnership mechanisms between public administration and the third sector Support for the establishment of a civil society is an indispensable element in creation of a mod− ern and partnership based state. Execution of public tasks should be based on cooperation between public administration and social partners, non−government organisations and trade organisations. Such formulation of support for administrative abilities converges with provisions of A White Paper on European Governance, as well as pursuant to CSG, which assume that supporting dialogue between relevant public, social and private entities provided that good quality policies and programmes

A diagnosis of this sector indicates weaknesses connected with insufficient involvement of the citizens in social activity, with undeveloped culture of cooperation between public administration and institutions of the third sector and with insufficient preparation of the third sector for implementation of public tasks. Those problems result from insufficiently developed civil society, which is a conse− quence of a short tradition of free civil operation in Poland.

To activate the third sector and to enhance its role it is necessary to establish conditions for devel− opment of the civil society in Poland, including first of all non−government organisations. This requires both the development of cooperation mechanisms between the public administration and institutions of the third sector, as well as propagation of a partnership based style of creation and execution of public tasks. In addition, implementation of the partnership style of cooperation necessitates preparation of non− government organisations to fulfilling the role of an active partner for public administration and improving the potential of those institutions as regards effective and professional providing public services.

Support for institutions that execute NSRF

Enhancing administrative capabilities of public institutions would also help improve the efficiency and effectiveness of management and execution of the cohesion policy. The evaluation of the imple− mentation system of the Community Support Framework in the years 2004−2006 indicates the exist− ence of particular problems and needs of institutions that handle structural funds. Hence institutions that deliver NSRF in the years 2007−2013 require separate support, granted within technical aid. Experience of the present programming period of 2004−2006 indicate that main weaknesses of the management and implementation system of the cohesion policy comprise: significant rotation of personnel connected mainly with low wages in administration; insufficient equipping of work posts with modern equipment, including also the absence of an effectively operating informatic monitoring and control system; insufficient information flow between entities involved in the implementation process of CSF, as well as no effective information policy concerning opportunities and procedures of obtaining resources from structural funds.

In response to problems diagnosed in NSRF plans assume undertaking measures in support of better employment stability and improving the standard of human resources involved in delivery of the cohesion policy in Poland. Effective execution of management and control processes related to structur− al funds also necessitate assuring appropriate technical conditions and resources. It is also necessary to take up communication and promotional measures aimed at propagation of information and promo− tion of operation in structural funds in Poland and better information and experience flow between participants of the NSRF implementation process.