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National Academy of Public Administration,Office of the President of Ukraine
CONCEPT and ROADMAP
Modernization of the System
of Professional Training
of Public Servants
Kyiv, 2006-2007
Freedom requires sophisticated organization
• A debate rages today in post-Soviet countries about a “historic choice” between freedom and order. Freedom is equated to chaos, so the tendency is to favor “order without freedom.”
• Ukraine also faces the risk of losing the political freedoms it won for itself, because those government institutions that are supposed to ensure that the new political objectives are being met remain unreformed.
• We are all witnesses to the fact that the gap between real political freedom and the absence of political order inevitably leads to chaos and corruption.
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• The best intentions of reform cannot be carried out when the knowledge and skills necessary to work in the environment of openness and fierce political competition are completely lacking.
• The 2 June 2006 Presidential Decree has challenged the National Academy to fill the gap in disseminating these unfamiliar democratic skills and knowledge.
A democratic Ukraine through a democratized government
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In accordance with the 2 June 2006
Presidential Decree № 474
• the process of modernizing the system of professional development for civil servants began
• the process of reforming the country’s main educational facility in the system of professional development for civil servants, the National Academy of Public Administration, Office of the President, has been launched
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Steps taken during Stages 1 and 2 include:Stage 1 (2 June 2006 – 2 September 2006)• An analysis of the current state policy regarding the professional development of civil
servants and local self-governance officials• A Public Council was established at NAPA• Full-scale consultations were organized and carried out with all stakeholders• A Roadmap to modernizing the system of professional development was drafted• Strategic areas for carrying out of this modernization were defined• Strategic working groups were set up for each of the areas• A website was developed to allow all stakeholders to interact and to keep everyone
informed of the progress of this reformStage 2 (2 September 2006 – 2 January 2007)• Analytical briefs were prepared on policy in each of the strategic areas, draft legislation
was prepared, and reform plans drawn up • Expert reviews and comments from leading specialists were elicited for each of the
briefs• International projects were prepared to carry out the new programs
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STAGE 1: Memorandum to the President of Ukraine: Reform Priorities
Presidential Decree
Appointment
Beginning of consultations
Analysis Tasks for analysis
Setting up a Public Council
Opinion poll
Identifying stakeholders
Personnel
Funding
Content
Laws
Collecting data
Developing database
Internal
External
Report
1st Draft of Memo
Preparing reports for discussion
Summer School/Workshop discussion
Setting up strategic groups
Submission of Memo to President
2.06.2006 4.06.2006 6.06.2006 8.06.2006 14.06.2006 20.06.2006 28.07.2006 10.08.2006 15.08.2006 21.08.20062.09.2006
2nd Draft of Memo
Preparing documents for discussion
Coordination of proposals
Reform priorities defined
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During the first stage of reform, a Public Council was established. Its Secretariat took care of organizing wide public consultations on the issues of reform policy, such as a vision, problems, goals and solutions.
The discussion of issues, goals and priorities in reforming the system for professional development of civil servants involved representatives of political parties, ministries, oblast state administrations, local governments, educational institutions, NGOs, and other stakeholders.
Participants offered their suggestions, recommendations and advice concerning the implementation of a new, effective system of professional development for civil servants capable of working in a democratic environment and the introduction of a new quality of knowledge, know-how and skills into the civil service of Ukraine.
1,130 individuals and organizations took part in these consultations: 250 from NAPA and its Regional Institutes
880 from other stakeholders
Public Consultations6
Main imbalancesin the basic ITC system at NAPA
• Lack of minimum basic information and communication technology (ITC) — even 66% of teaching staff lack computers at their desks while lecture halls, dormitories, workplaces for visitors, including VIPs, lack computers entirely;
• Existing computers are loaded with software systems that are against the recommendations of the European Commission (i. e. Microsoft programs);
• There are no basic ITC services, such as e-mail access for all the staff, information security systems, and so on;
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2.09.2006 2.10.2006 2.12.2006 2.01.2007
Identify stakeholder experts for consultations
1st draft of strategy, draft legislation, action plan
Consultations
Report on consultations
Submit strategy / policy, draft decisions, action plan
Prepare strategy/policy,draft decisions,
plans for each group
Strategy/policy
Draft political decisions
Schedule reform implementation
Strategic groups according to reform
priorities
Discuss documents
Coordinate proposal
Discuss strategy /policy, draft decisions,
action plan
Edit documents
STAGE 2: Drafting of strategy etc.
Democratic institutional standards
“Golden reserve”
Regulatory and legal support
Funding
Regular professional upgrading
MPA
Implement Implement reformreform
Compulsory democratic minimum
Training of new appointees
Regular professional training
Setting up modern infrastructure
Developing courses in democraticgovernment for higher education
Expert and analytical support
Internationalintegration
Draft international projects to develop
new programs
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Today The Desirable Future
HowHow
to organize to organize
the transitionthe transition??
• A GAP between the needs of a new democratic social and political system and an obsolete government machine;• NO democratic professional standards for civil servants;• NO procedures of expert analytical support to the President of Ukraine;• new appointees do not have any training AT ALL;• ONLY 50% of civil servants receive at any retraining;• Professional development is funded 100 TIMES LESS than in developed democracies;• FUNDING SYSTEM make people either fools or criminals;• UNDERDEVELOPED INFRASTRUCTURE at NAPA (one PC with internet/16 students; no phone or e-mail network).
• Ordinary citizens and politicians alike get a completely new quality of services from civil servants;• civil servants get a completely new kind of learning experience that corresponds to the new political reality (multi-party government, political competition, free press);• senior civil servants get special professional training;• mandatory training of civil servants after appointment;• mandatory training of civil servants about changes to public policy and new legislation;• ordinary citizens, politicians and civil servants clearly understand principles and instruments of democracy;• the country gets a professional government school;• all universities offer courses in democratic governance
Strategy for Modernizing the System for Professional Development
STAGE 1 STAGE 1 (June-Sept 2006)(June-Sept 2006)Open consultations with public and stakeholders
Defining reform priorities. Setting up working groups at the National Academy
External Components:Implementing DEMOCRATIC STANDARDS for the daily professional activities of civil servants in decision-making and service delivery;Introducing mandatory courses in the basics of democratic governance in primary, secondary and post-secondary curricula.
NAPA Components:New training cycles:
TARGETED training of senior civil servants (12-18 months)Professional development for civil servants after appointment (2–3 weeks)Seminars for civil servants on changes in public policy and new legislation (2–3 days)
Establishing a new program of Master of Public Administration (MPA) with democratic content.Research in applied problems of current importance for public administration and local governance.
STAGE 2 (Oct-Dec 2006)STAGE 2 (Oct-Dec 2006)Drafting necessary strategy, etc. Launching international projects to develop new programs.
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2.01.2007 2.04.2007 2.05.2007 2.09.2007
New curriculum development
STAGE 3: New Curriculum Development and Information Campaign
New training cycles – 75% of spending.
Old commitments
On changes in public policy and new legislation, 2 – 3 days;After appointment, 2 – 3 weeks;Targeted training of senior civil servants, 1 – 1.5 years
New MPA program – 10% of spending
Applied research – 15% of spending.
Conducting public information campaign
Change management during the reform implementation
Draft new rules for entryFinalizing new curriculum
Adoption of new rules for entryAdoption of new curriculum
Developing and adoption of new plan for selecting topic for research
Announcement of new MPA programEstablishing curriculum development workgroup
Execution and accompanying decisions
Preparation of necessary political and organizational decisions
Organizational reform of NAPA and its Regional Institutes
Establishment of InternationalSteering Committee
Development and adopting plan of the public campaign
Workshop13-16.03.2007
Discussing new professional upgrading program
International projects for development of new programs
05-06.03.2007
Determining amount and ensuring execution
2.06.-2.07.2007
2.08.2007
For NAPAFor Ukrainian education system
Informing PSE institutions about the initiativeDesignate group of universitiesEstablishing requirements for Ukrainian education system
Determining procedure of involvement of researchers and experts
Developing format and procedure of research organization
Preparation of trainers
Preparation of trainers
Підготовка тренерів
Work in line with NAPA curriculum
Conference “Price of non-doing
democratic governance education”
10.10.2007
Adoption of curriculumCompleting admission of participants
Accompanying execution
Adoption of new regulations
Beginning of research acc. to the new regulations
Teaching Accompanying the processIntroducing MPA program to universities
Draft of professional upgrading program framework. Training of instructors
Probation of instructors
Preparation of instructors
Developing training cycles
Developing training cycles
Accompanying the reform
Development of the universal reform plan
Preparation and realization of public campaign
Development of Communication Strategy
Developing training cycles
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Ensuring lifelong learningin democratic governance
The main objectives in ensuring lifelong learning in democratic governance are:
• Introducing the teaching of basic democratic governance into the public school system;
• Demonopolization of the professional development of public administration specialists.
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Teaching basic democratic governancein Ukraine’s education system
• Elementary and high school:
Civic education• Technical-vocational schools:
Civic education• University education:
Democratic governance;
Public policy;
Policy analysis:
Public administration
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Demonopolizing education of public administration specialists
• Implementation of the professional development of public administration specialists to higher education institutions
• Developing the necessary standards for preparation of BA’s and MA’s in Public Administration
• Preparation of the necessary teaching materials and methods and training required teaching and research personnel
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Preparing Public Administration specialistsin the higher education system
• Establishing of a three-level system of education—bachelor, master and doctor—in accordance with the Bologna process.
• Designing a new curriculum for teaching in three areas:
Democratic governance
Regional development
European cooperation
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2.01.20072.04.2007 2.05.2007 2.09.2008
Developing a new MPA program
New MPA program
Change management during reform process
•Draft new rules for entry
•Approve draft of program
•Approve rules for entry
•Announce new MPA program
•Approve new program
Enact and facilitate legislation
Implementation
Draft necessary legislation
Organize events
Workshop13-16.03.2007
2.07-2.08.2007
NAPA
Ukraine’s educational system
•Inform PSE institutions about this initiative
•Designate group of universities
•Establish requirements of national public education system
Joint work with NAPA
Facilitate introduction
of new MPA program
in other universities
Train research and teaching specialists
Train research and teaching specialists
Train research and teaching specialists
Facilitation
Teaching
Develop plan of changes
Complete admissions process
02.06.2007
National Academy of Public Administration, the Office of the President of Ukraine
Set up working group to prepare methodic resources
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Research and analytical activity at NAPA
NowTotal research projects produced by NAPA and affiliates: 53. Of that, 26 from Kyiv, 13 from Kharkiv, 6 each from Dnipropetrovsk and Odesa, and 2 from Lviv.
NAPA includes the Institute of Issues of Public Administration and Local Government
NAPA and its regional institutes handle 401 graduate students, including 193 full-time; 72 doctorate students and 338 post-graduate fellows in Public Administration following 4 specializations: Theory and History of Public Administration, Mechanisms of Public Administration, the Civil Service, and Local Governance.
They also have 6 specialized academic committees for the supervision of dissertations in Public Administration at the doctoral and candidate level.
Since post-graduate degrees became available at NAPA, a total of 45 Doctors and 236 Candidates in Public Administration have been granted.
Future plansDemocratic governance studies
Current research into governance policy
Analytical and research support for the activities of the President of Ukraine and higher government bodies
Partnership with foreign universities and institutes
Establishing a competitive national school of studies in democratic governance
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2.01.2007 2.04.2007 2.05.2007 2.09.2007
Developing a new system for designating suitable subjects for research and dissertation work
2.06.-2.07.2007 2.08.2007
Establishing a procedure for engaging researchers and experts
Developing a format and procedures for organizing research studies
10.10.2007
Approving the new rules
Beginning research according to new rules
Roadmap to reforming research activities17
Shortage of professionals 25%(based on 5-year qualification upgrades and 20% staff turnover)
Upgraded qualifications
15%
Did not upgrade qualifications
5%
Newly appointed 20%
Professionally qualified civil servants and local officials
60%
Individuals needing to upgrade qualifications annually
144,269
Individuals completing upgrade
52,572
Shortage of professionals in government offices and local governance bodies
91,697
Art. 29 of the Law “On the Civil Service” requires civil servants to continually upgrade their qualifications, including through courses at appropriate educational institutions, as a rule, at least once in five years.andArt. 8 of the Law “On the Civil Service in Local Governments” requires local officials to continually improve the organization of their work and to improve their professional qualifications.
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Approved Expenses
Master’s program 64%
Post-graduate studies
11%
Applied projects 8%
Fundamental research 6%
Professionalupgrading
6%
Doctorate
5%
Total of 30% for research and training research staff
Activity 2006UAH ’000
2006UAH ’000
Fundamental research 2,621.5
38,181.0
Applied projects 3,307.1
Post-graduate studies 4,530.0
Doctoral studies 1,929.0
Masters of Public Administration 25,793.9
Upgrading qualifications 2,412.1 2,412.1
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Legislation in upgrading qualifications
Current state
Today, Ukraine’s system of professional development for civil servants is governed by: 4 Laws, 11 Presidential Decrees and Instructions, 46 Cabinet of Ministers of Ukraine Resolutions and Instructions, 4 Decrees and over 30 recommendations by the Main Administration of the Civil Service of Ukraine.
Problems
• These pieces of legislation and regulation are inconsistent as to the organization and execution of all levels of professional development for civil servants and local officials. • There is no consolidated national standards for this kind of professional development.
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Institutions providing upgrading qualifications
Current state
The Institute for Upgrading Qualification and the regional Institutes of NAPA,24 Training Centers for civil servants, local officials and managers of state enterprises, agencies and organizations,76 sector-based educational facilities for the professional development of managerial staff in various branches of the civil service,The Institute for the Professional Development of Banking Professionals,— plus an extensive network of NGO training, including:5 regional centers run by the US-Ukraine Foundation,Training programs under other NGOs who work with local governance officials.
Problems
• Lack of accessible common information base
• Lack of coordination
• Outdated teaching methods and materials
• No system for training and testing instructors
• A curriculum whose contents do not reflect contemporary issues and needs
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The level of funding in Ukraine for professional development is 100 TIMES LESS than in developed democracies where it is a mandatory item in the State Budget and is equivalent to 5% - 10% of the payroll fund of civil servants. (in Ukraine: about 0.1%)
Funding
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2.01.2007 2.04.2007 2.05.2007 2.09.2007
Educational cycle
New training cycles
Targeted training of senior civil servants(12-18 months)
PD for civil servanst after appointment(2-3 weeks)
Seminars on changes in public policy(2–3 days)
Training for Deputies
Preparation of new program
05-06.03.2007
2.06.-2.07.2007 2.08.2007
Study programs for trainers
Negotiations with Bavarian School of Government
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The NAPA Budget Breakdowncurrent future
Master's Program 64%
Post-graduate studies 11%
Applied projects 8%
Fundamental research 6%
Professional upgrading 6%
Doctorate 5%
MPA
10%
Universities in Ukraine
Training for professional work in senior positions in the civil service and local government25%
Research and expert analytic work 15%
Short-term professional
seminars on changes in public policy and
new legislation25%
Training after appointment 25%
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Chart on attracting international technical assistance for
modernizing the professional development system
d e m o c ra tic sta n da rdso f de c isio n p rep a ra tiona n d se rv ice p rov is ion
in trod u cin g te ach ing on the b as icso f de m oc ra tic g o ve rn an ce
in to p rim a ry, s e con d a ry a n d h igh e r e du c a tion
EXTER N AL priorities
cu rricu lum developm ent
tra in ingtra ine rs
studyp rocess
o rganiza tion
T AR G ET ED tra in ingo f sen io r c iv il se rvan ts
1 - 1 .5 yea rs
cu rricu lum developm ent
tra in ingtra ine rs
studyp rocess
o rganiza tion
S em inars on changesin pub lic po licy
and new legis la tion2 -3 days
B avarian S choo l o f Adm in
cu rricu lum developm ent
B avarian S choo l o f Adm in
tra in ingtra ine rs
B avarian S choo l o f Adm in
studyp rocess
o rganiza tion
T ra in inga fte r appo intm ent
2 -3 w eeks
F H V R Berlin
cu rricu lum developm ent
F H V R Berlin
tra in ingtra ine rs
F H V R Berlin
s tudyp rocess
o rganiza tion
M PA
new procedu reso f sub ject designa tion
deve lop ing fo rm atand p rocedures of
resea rch o rgan iza tion
resea rcho rganiza tion
R e levan t resea rch
INTERNAL priorities
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Training of parliamentarians
curriculum development
trainingtrainers
studyprocess
organization
Post-graduate studies 11%
Applied projects 8%
Fundamental research 6%
Doctorate 5%
Master’s program 64%
CurrentThe National Academy of Public Administration,
Office of the President of Ukraine
In-service training 6%
University education94%
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FutureThe National Academy of Public Administration,
Office of the President of Ukraine
In-service Training Centers for university professors
Regional centers of in-service training for public servants
In-service Training Center for organizers of in-service training institutions
In-service training University education
Targeted training for senior executives(1-1.5 years)
Training on changes in legislative and public policy (2-3 days)
Training of parliamentarians
Training after appointment (2-3 weeks)
MPA
Research in relevant problems of democratic governance
Universities and other higher education institutions in Ukraine
Post-graduate studies
Doctorate
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Prioritiesof modernization of the public service professional training system
• Reforming the system of financing: its scope and methods
• Reforming the legal provision
• Implementation of the new democratic standards of decision preparation and service provision at the workplace of PS
External prioritiesExternal priorities
• Development of new training cycles:
“Targeted training for senior executives”
1.5 years“Training on changes in legislative
and public policy”2 days
“Training after appointment”2 weeks
“Training for newly-elected deputies of all levels”
2 weeks
In-service training
Components of the National AcademyComponents of the National Academy
• Development of new master’s programs in democratic governance
• Establishment of the Research Institute of relevant problems of democratic governance
• Establishment of the In-service Training Center for organizers of in-service training institutions of all types and levels in NAPA
• Establishment of the In-service Training Centre for university professors in NAPA
• Implementation of normative courses in Introduction to Public Administration to primary, secondary and higher education institutions
University Education
• Correction of the list of themes of post-graduate and doctorate papers in accordance to the needs of democratic governance
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