Abstract
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Although the Civil Service is one of the largest structures in Poland, it remains still young when compared to similar structures In other European states since it was created after the collapse of the communist system. The creation of the civil service in Poland was only possible as a result of stabilization of the democratic institutions and increasing flexibility of the system of administrative staff law. The process of creation of the civil service in Poland is evaluated critically and skeptically. As Professor Michał Kulesza rightly pointed out, “ruling parties never trusted the administrative staff appointed by their political predecessors. It was the birth-sin that influenced the public management in Poland. The Civil Service Laws (of 1996, 1998 and 2006) were enacted in consequence of political decisions, which unfortunately resulted in subordinating the civil service to political authorities and stopped it from operating in accordance with the vision and values of the civil service, i.e. professionally, accurately, neutrally and creatively. All the above mentioned Laws were adopted pursuant to the same assumption that the government must hold control over the working and recruitment of the higher administration staff, which was supposed to lead to the implementation of political decisions. In consequence the civil service could not develop its own ideas of functioning, even the very temporary ones. This situation was partly rooted in the deficit of professional and non-political administrative officials. The National School of Public Administration (hereinafter referred to as: “KSAP) was only graduated (since its establishment in 1991) by around 1,000 people. It also influences the fact that ruling politicians impose their short-term and politically driven perspective of aims and methods on young administrative elites. Thus this young elite cannot assure the continuity of operation and organizational memory absolutely indispensible for the effectiveness of administration reforms.
The Polish model of civil service can be qualified as a mixed one – in practice though largely influenced by the carrier model, its weaknesses being poor linkage between an official and his or her institution, lack of motivating remuneration system, lack of competition and – in consequence – lack of the creative approach enhancements. Moreover, the Polish administration is based on the assumption that the law is a remedy to all problems whereas it should be treated as an instrument of achieving the designed goals. More attention should be paid to issues of public management, strategy building, concept development and exchange of good practices – instead of only concentrating on legal questions. The present Civil Service Law, which entered into force on 24th March 2009, is a relatively new legislation therefore causing certain doubts and practical problems, whereas organization and functioning of the civil service constitutes an essential element of good government administration.
In light of the so presented image of the civil service – resulting from our own observations only as lawyers and researchers – we decided to undertake a research inside of the very structure of the civil service. Our aim is to diagnose the functioning of the civil service as view from inside of it, to define its strengths and weaknesses as perceived by the civil service staff. The result of this research is assumed to serve as a discussion material on the eventual model of the Polish civil service. We hope to present the outcome of the research for the first time in Varna which we find a very prominent forum for exchange of views and experience. We also would like to compare the outcome of the research with the civil service arrangements existing in other Central and Eastern European states. Being employees and visiting fellows of KSAP, we would like to undertake the research among the civil service staff, including the KSAP graduates. Our aim is to poll 1,200 civil service staff members between November 2010 and early May 2011. The research shall be rather unique and original due to the approach applied and the polled group.
The research shall be based on a survey (with both “yes or no” questions and open questions requiring more extensive reply) in which we intend to ask the polled on:
• whether and to what extend one finds himself a part of the civil service structure and its vision,
• whether one implements this vision and the principles of the civil service in practice,
• whether one is satisfied with the organizational model of the civil service in Poland, whether one finds it really mostly influenced by the carrier model,
• what would be the most preferred model of civil service, allowing for both personal professional development (including managerial and management capacities) and appropriate functioning of the civil service in general,
• whether the civil service legislation is well known and whether its interpretation and application causes doubts,
• what is the opinion on the Polish civil service legislation (whether it does not cause problems to professional, accurate and neutral operation of the civil service),
• what is the opinion on the organization of civil service in Poland and whether it suffices to create, develop and coordinate the reform in the very civil service or whether the establishment of a new structure would be desired,
• whether effective means of communication exist within the civil service,
• whether the exchange of good practices exists within the civil service,
• whether the structure is well shaped and integrated,
• whether the structure is capable of developing common concepts, to what extend it is possible and what obstacles are met etc.
The initial assumption of the authors is to present precise and practical comments based on the poll within the time limit set for the project (6 months). We are of awareness and share the view that a civil service in a given country is rooted in its traditions and needs and the concept of reform. The goal of the project shall be achieved if the results of the research contribute – even to a little extend – to the development of long-term concepts of functioning of the civil service and optimizing its structure.
Dr. Marcin Górski, Agnieszka Jezierska (National School of Public Administration, Warsaw).
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