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Reference Guide for HORIZONTAL INTEGRATION (in English)

Peter Goldschmidt, Marta Daruľová, Tóni Niculescu and Anton Stemberger

Date: 2005

ISBN: 80-89013-22-8

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CONTENTS

List of Editors and Main Contributors.................................................................. 5

Preface....................................................................................................................... 7

I Introduction ...................................................................................................... 9

I.1 Purpose and Beneficiaries of the Guide .............................................. 11

I.2 Context of Public Administration ....................................................... 11

I.3 Accession Criteria.................................................................................. 15

I.4 What to Find in the Guide ................................................................... 17

II Need forHorizontality.................................................................................. 21

II.1 Core Areas of Horizontal Co-ordination........................................... 25

II.1.1 Co-ordination and Policy-making Capacities in

Member States ............................................................................ 29

II.1.2 Civil Service ................................................................................ 31

II.1.3 Public Procurement.................................................................... 32

II.1.4 Public Expenditure Management.............................................. 33

II.1.5 Internal Financial Control......................................................... 34

II.1.6 External Audits........................................................................... 35

II.2 Quality Management Tools................................................................... 35

II.2.1 The ISO 9000 ............................................................................. 36

II.3 Benchmarking Tools for the Public Sector ......................................... 37

II.3.1 Common Assessment Framework ........................................... 37

    1. European Foundation for Quality Management

Excellence Model........................................................................ 41

    1. The Open Method of Co-ordination

(Commission Scoreboards)....................................................... 42

II.3.4 Metcalfe Co-ordination Scale.................................................... 44

II.4 Functional Review.................................................................................. 45

III Accession Driven Policy-making andCo-ordination............................... 47

III.1 Preliminaries ........................................................................................... 49

III.2 Policy-making and Co-ordination........................................................ 49

    1. Institutional Support for Co-ordination.................................. 52
    2. Horizontal Co-ordination of Central Administration........... 53

III.2.3 Intra-governmental Co-ordination........................................... 54

    1. Convergence and Structural Adjustment................................. 57
    2. Institutional Co-ordination for Pre-accession and

Structural Funds ......................................................................... 59

III.3 Changing Functions of Governmental Units ..................................... 62

III.4 Co-ordination among Governments.................................................... 64

III.5 Financial Management ........................................................................... 65

III.6 Ethics – As Challenge in Co-ordination and Evaluation .................. 67

IV Implementation Issues ................................................................................... 69

IV.1 Introduction ........................................................................................... 71

IV.2 Implementation Guidelines................................................................... 74

IV.2.1 Implementation Gaps ................................................................ 80

IV.3 The Role of the European Court of Justice ....................................... 83

IV.3.1 Infringement Procedure............................................................. 85

IV.3.2 Preliminary Ruling ..................................................................... 86

IV.4 Selected ECJ Case Law on Implementation ....................................... 88

IV.4.1 Non-implementation of a Directive......................................... 88

IV.4.2 The Necessity to Provide Adequate Remedies ....................... 90

IV.5 Conclusions ............................................................................................ 91

V Roadmap for Horizontal Co-ordination.................................................... 93

V.1 Introduction ........................................................................................... 95

V.2 Human Resources and Knowledge ...................................................... 97

V.3 Flow of Information.............................................................................. 99

V.4 Culture .................................................................................................. 100

VI A Few Concluding Remarks ..................................................................... 103

Glossary................................................................................................................. 107

List of Abbreviations ........................................................................................... 111

References / Bibliography .................................................................................... 113

List of other Contributors, Trainers andAdvisors ............................................ 117




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