2015 Annual Report on the implementation of the Action Plan of ...

2015 Annual Report on the implementation of the Action Plan of Republic of Serbia Public Administration Reform Strategy for the period 2015-2017

Ministry of Public Administration and Local Self-Government

February 2016

1 | A P P A R

CONTENTS

ABBREVIATIONS .................................................................................... 2

I Introduction – Aggregate Overview ................................................. 3

II Key achievements, progress against the objectives ..................... 11

III Key challenges and priorities in 2016........................................... 25

IV PAR Coordination and Management System .............................. 28

Annex 1: Implementing Activities in 2015 ........................................ 30

Annex 2: Implementation of results – Indicators for 2015 ................ 97

2 | A P P A R

ABBREVIATIONS

ACAS Anti-Corruption Agency

a Activity

AI Administrative Inspection

AP Action Plan

BRA Business Registers Agency

AP PAR Action Plan for the Implementation of the Republic of Serbia Strategy for Public Administration Reform

HCSC High Civil Service Council

GenSec General Secretariat of the Government

DEG Directorate for e-Government

NAA National Audit Authority

EU European Union

EC European Commission

EU IPA European Union Instrument for Pre-Accession Assistance

IS Information System

LSGUs Local self-government units

LSG and AP Local Self-Government and Autonomous Province Units

PA Public Administration

EIO European Integration Office

Cont. Continually

MPALSG Ministry of Public Administration and Local Self-Government

IMPG Inter-Ministerial Project Group

MoJ Ministry of Justice

MBF Medium-term Budgetary Framework – Fiscal Strategy

MoF Ministry of Finance

MoI Ministry of Interior

NACS National Anti-Corruption Strategy in RS, for the period 2013 - 2018

PAAs Public Administration Authorities

OECD Organisation for Economic Cooperation and Development

CSOs Civil Society Organisations

PEFA Public Expenditure and Financial Accountability

BV Baseline Value

ISfGPPR Information System for the Government Performance Planning and Reporting

PAPs Public Administration Principles

NGA National Geodetic Authority

r Result

RoS Republic of Serbia

PAR Public Administration Reform

NAA National Auditing Authority

NPPS National Public Policy Secretariat

WB World Bank

SCTM Standing Conference of Towns and Municipalities

SIGMA OECD Support for Improvement in Governance and Management Programme

PARC Public Administration Reform Council

HRMS Human Resource Management Service

ToR Terms of Reference

DPP Directorate for Public Procurements

AI Administrative Inspectorate

HRM Human Resources Management

FA Functional Analysis

FMC Financial Management and Control

TV Target Value

CROSO Central Register for Mandatory Social Insurance

3 | A P P A R

I INTRODUCTION – AGGREGATE OVERVIEW

The general purpose of monitoring, reporting, and evaluation system for any public policy is (a) to collect

the data within the implementation of that policy so as to see whether planned activities are being

implemented as intended and to identify any risks arising due to the activities not being implemented or

due to the absence of expected outcome, and (b) to see what progress was made, thanks to that policy,

with regard to the objectives and expected impact as defined by the Government. The ultimate goal of

monitoring is to make timely decisions, with the aim to improve the results of that policy and, possibly,

make changes in the course of implementation. Monitoring the public administration reform is based on

the Action Plan for the Implementation of the Republic of Serbia Strategy for Public Administration

Reform (hereinafter: SfPAR) (Official Gazette of RS, No 31/15).

Reporting is a very important step in the monitoring process. It constitutes of preparing the concise and specific reports based on the previously collected data about the progress made in the implementation of public policy. With regard to reporting frequency, AP PUR provides for semi-annual and annual reports. Reporting is coordinated and implemented by an organisational unit of the Ministry of Public Administration and Local Self-Government (hereinafter: MPALSG) that was designated to monitor and report about the implementation of the goals of the PAR Strategy (Unit of Public Administration Reform Implementation and Training Development), as well as by the organisational units of other competent ministries and public administration authorities specified as the ones responsible for the implementation under the PAR Action Plan, through contact-persons (deputy members) in the Inter-Ministerial Project Group (the Minister for State Administration and Local Self-Government Decision No 119-01-00242/2014-04 of 23 February 20151)

First Semi-Annual AP PAR Status of Activities’ Report in the first half of 2015, was prepared and

published on the MPALSG website in August 20152, and it was confirmed and adopted at all levels of

coordination: the Inter-Ministerial Project Group (7 October 2015), the Collegium of State Secretaries

(16 December 2015), and the Public Administration Reform Council (17 December 2015). The Report

revealed that 52% of the activities the defined timeline of which was in the first half of 2015 were

implemented, 24% were partially implemented, and 24% were not implemented. Out of 33 activities

monitored in the first half of 2015, the Ministry of Public Administration and Local Self-Government is the

institution responsible for the implementation of most activities (26 activities in total, or 22 activities

without state authorities within the Ministry (Directorate for e-Government is responsible for the

implementation of 4 activities). The Ministry of Finance, the Ministry of Justice, and the National Public

Policy Secretariat were responsible for the implementation of 2 activities, 1 activity, and 4 activities,

respectively. The Report suggested that most common reasons for the deviation from the plan included

lack of capacity, the duration and scope of consultations, the need to define the scope of the reform (to

define the public sector and the public administration), as well as frequent reprioritisation of activities, 1 The Decision was amended by the Decision on Amending the Decision on Setting Up an Inter-Ministerial Project Group for Professional

Tasks in Coordinating and Monitoring the Implementation Process of the Strategy for the Republic of Serbia Public Administration Reform for the period 2015 - 2017, No: 119-01-00242/2014-04 of 7 August 2015, because of the personnel changes in public administration authorities and civil society organisations. 2 The Report is available on the following links, in Serbian, in the pdf format: http://www.mduls.gov.rs/doc/AP_izvestaj_rs.pdf in the word

format: http://www.mduls.gov.rs/reforma-javne-uprave-sprovodjenje-strategije.php , or in English, in the pdf format: http://www.mduls.gov.rs/doc/Semi-Annual%20AP%20PAR%20Status%20Report.pdf, and in the word format: http://www.mduls.gov.rs/english/reforma-javne-uprave.php

http://www.mduls.gov.rs/doc/AP_izvestaj_rs.pdf

http://www.mduls.gov.rs/reforma-javne-uprave-sprovodjenje-strategije.php

http://www.mduls.gov.rs/doc/Semi-Annual%20AP%20PAR%20Status%20Report.pdf

http://www.mduls.gov.rs/english/reforma-javne-uprave.php

4 | A P P A R

and the need to merge the activities, which all should be taken into account in the following AP PAR

planning cycle.

The same as with semi-annual reporting process, MPALSG started the annual report collection

procedure by forwarding, on 8 January 2016, the Instructions for annual reporting and Excel tables

for each of the specific goals to all contact-persons in competent state administration

authorities. Deadline for annual report preparation is 1 March 2016.

Based on individual reports that were received (Annex I and II hereof), Annual Report for 2015, about

the implementation of the Action Plan for the Implementation of the Republic of Serbia Public

Administration Strategy for the period 2015-2017 was prepared.

Methodological approach for preparing this report and preparing the action plan template, places focus

on the results and monitoring of achieved results and indicators, at the same time retaining the elements

of activity-oriented procedural (implementation) approach to monitoring. The goal is that above

mentioned monitoring does not end with the activities and their outputs, but to also observe the

outcomes made through those activities; namely, to observe actual changes to the reality that occur due

to the public policy interventions. In this context, AP PAR template was designed in such a way that it is

result-oriented, but each result comes with a list of main activities that are expected to be necessary in

order to achieve the result concerned, and with a deadline for the implementation of those activities, so

as to enable the monitoring of the progress made in achieving the results. In order to enable procedural

(implementation) document monitoring, in combination with result-oriented monitoring, AP PAR defined

the timelines for the implementation of individual activities within a result as the last quarters for activity

completion and not as the overall timeline for the implementation of activity. Performance indicators for

monitoring within the implementation of the Action Plan are defined for goals and for results.

Specifically, the AP PAR template defines 5 specific goals, 19 measures, 47 results, and 86

indicators both for results and for specific objectives/ general objective, out of which 24 indicators were

taken from the SIGMA “Public Administration Principles” (precisely, the total number of indicators is 88,

but two indicators are performance indicators for different results/goals and are shown twice).

For 19 measures within specific results, the Action Plan mentions that they are primarily based on the

headings from the PAR Strategy within specific goals, namely that they represent the ‘subheadings’ of

the documents in which coherent, interconnected results are grouped together. In other words,

measures are not monitored through indicators since it was unreasonable to develop the indicators at

four different levels. Accordingly, they are not directly monitored under this report.

For the general goal, 5 specific goals, and 47 results, reports from competent institutions were

requested for all 86 indicators, but it was noted that no indicators for 2015 are available for 24 SIGMA

indicators3. In the development of the AP PAR, 11 out of 24 SIGMA indicators were connected with the

AP PAR specific goals, and 13 with concrete results, so as to more strongly connect the public

administration reform with the process of the accession of Serbia to the European Union and to make

the monitoring of PAR more efficient and more cost-effective (considering that, for the indicators from

3 SIGMA (EOCD/European Commission) performed the baseline value measurements for 2014, and in 2016 it will perform measurements

for individual principles only (Service Provision and Human Resources Management; Public Finance Management). At the time the AP PAR Report is written, the values which SIGMA is measuring in 2016 are still not measured for 2015. No new measurements for any principles are expected before 2017 for the preceding period. The document entitled “Public Administration Principles” (2014) is available from: http://www.sigmaweb.org/publications/SER%20Principles%20of%20Public%20Administration%20Master%20Updated%2028%20January.pdf The first measurement performed for Serbia, from April 2015 („The Principles of Public Administration – Serbia April 2015, Baseline Measurement“) is available from: http://www.sigmaweb.org/publications/Baseline-Measurement-2015-Serbia.pdf

http://www.sigmaweb.org/publications/SER%20Principles%20of%20Public%20Administration%20Master%20Updated%2028%20January.pdf

http://www.sigmaweb.org/publications/SER%20Principles%20of%20Public%20Administration%20Master%20Updated%2028%20January.pdf

http://www.sigmaweb.org/publications/Baseline-Measurement-2015-Serbia.pdf

5 | A P P A R

the SIGMA Public Administration Principles, the analyses and measuring are made based on the data

provided by Serbia). This report will indicate the baseline values defined by SIGMA for 2014, and target

values which Serbia plans to reach in 2017. It is important, however, to note that SIGMA Principles

relate to public administration and that, in individual specific goals, the scope of reforms in public

administration is measured by the indicators presenting the state administration, as it was originally set

in the AP PAR planning phase. This should be taken into account in the next AP PAR planning and

review cycle.

For the remaining 62 indicators which are set for the results and for the General Objective, for 28

indicators no progress was supposed to be monitored in 2015 (some results and activities are to be

implemented beginning with 2016 or 2017, and, for some indicators, the measurement interval should

be two or three years). There is no data available for a certain number of indicators, but it was found, in

the process of the Passports’ Indicators’ development, that they do not adequately express the result,

such as the indicator that by decreasing the number of complaints submitted to the Commissioner for

Information of Public Importance we will measure the Result 5.1.1. – All information about the

functioning of public administration is available online and uniformly presented. In this specific result, the

purview of the Commissioner includes only monitoring of publishing the single document, namely the

Information Booklets. The Commissioner performs monitoring of the implementation of this legal

obligation ex officio or upon a request (not a complaint). According to the data provided by the

Commissioner, the number of reports because of the Information Booklets were not published was small

in the past period: 5 in 2011, 2 in 2012, 1 in 2013, 2 in 2014 and 2015, and 4 upon the report of a

private citizen in the total of 6. The indicator entitled “Decreasing the number of complaints submitted to

the Commissioner for Information of Public Importance“ relates to the complaints by the persons who

were not provided information by a public authority, namely were not able to exercise their right of

access to information upon the request submitted because a presumption was that better accessibility of

information online should decrease the number of individual requests for information from the authorities

and, accordingly, decrease the number of complaints submitted to the Commissioner. In other words,

the complaints were not submitted to the Commissioner because they were not available online; rather,

they were submitted because of the accessibility of the information of public importance, the

administrative silence, etc., and, based on the Annual reports of the Commissioner and the progression

for preceding three years (2014 Report on the Implementation of the Law on Free Access to Information

of Public Importance and the Law on Personal Data Protection), the trend suggests an increase, rather

than a decrease in the number of complaints submitted to the Commissioner4.

It should be noted that only a very small number of results were defined to be fully completed before

end of 2015 (out of 47, for the total of 5 results the deadline was 2015: 1.3.3, 1.4.1, 2.3.2, 3.1.1,

3.3.1.). For most of the results, deadlines for the listed key activities that are required for the

achievement of particular results are 2015, 2016, or 2017, so that the total result could be achieved in

the end of the AP PAR implementation. For those results, only their progress in 2015 is monitored.

4 According to the data provided by the Commissioner, the number of received complaints was 2330 in 2012, 3300 in 2013, 3929 in 2014,

and 3821 in 2015. In the past period the number of complaints because of the failure to publish the fact sheet was small, 5 in 2011, 2 in 2012, 1 in 2013, 2 in 2014 and in 2015. 4 upon the report of a private citizen (out of the total of 6). Please see the following documents: Passports’ Indicators developed for AP PAR in 2015 and 2014 Report on the Implementation of the Law on Free Access to Information of Public Importance and the Law on Personal Data Protection: http://www.poverenik.rs/yu/o-nama/godisnji-izvestaji/2048-izvestaj-poverenika-za-2014-godinu.html

http://www.poverenik.rs/yu/o-nama/godisnji-izvestaji/2048-izvestaj-poverenika-za-2014-godinu.html

http://www.poverenik.rs/yu/o-nama/godisnji-izvestaji/2048-izvestaj-poverenika-za-2014-godinu.html

6 | A P P A R

Graph 1: Graphical overview of progress made in the fulfilment of indicators in 2015

Graph 2: Graphical overview of the achieved results for which the deadline was 2015 (the

total of 5 results)

Out of 5 results for which 2015 was the defined deadline (1.3.3, 1.4.1, 2.3.2, 3.1.1, 3.3.1.) the Result

Indicator 1.3.3. Increased transparency of public policy management showed some progress: from the

baseline value in 2014, namely the 31% share of draft laws for which the discussion took place within

the drafting process in the total number of draft laws adopted at annual level, their share rose to 39% in

2015, although the 50% share was set as the target. The activities listed for the Result are implemented

partially or not at all, although the Result leans on many more activities than what is planned in AP PAR.

For the Result 1.4.1. Ensured coordinated management of the development of e-government, with the

establishment of institutional, and the completion of legal, framework, the indicators were not

implemented. However, out of two activities, one (adoption of the Strategy for the Development of e-

Government in the RS with AP) was implemented in December 2015, with some delay, and the other

activity (setting up of a Work Group for e-Government within the Public Administration Reform Council)

was not timely implemented, but formal adoption of relevant decisions and the Decision on Setting-up

the Work Group is now in progress. For the Result 2.3.2. Established regulatory framework for the

23

12

36

PROGRESS IN THE FULFILMENT OF INDICATORS

NO PROGRESS

NOT MEASURED IN 2015

Indicators vs. Results in 2015

PROGRESS IN THE FULFILMENT OF INDICATORS

NO PROGRESS

NOT MEASURED IN 2015

MoF1

MPALSG1

MPALSG2, MoF 1

IMPLEMENTED

PARTIALLY IMPLEMENTED

NOT IMPLEMENTED

5 results/indicators with deadlines in 2015

IMPLEMENTED

PARTIALLY IMPLEMENTED

NOT IMPLEMENTED

7 | A P P A R

development of HRM function in the AP and LSGUs, the indicators suggest that the Result was not

achieved, even though the conditions for the fulfilment of the Result were created by the implementation

of 2 out of 5 activities that were planned – the Proposal of the Law on Employees in the AP and LSGUs

was defined in October 2015 and forwarded to the National Assembly for adoption, and the Strategy for

Further Professional Development of Employees in LSGUs was adopted on 12 March 2015. Result

3.1.1. Adopted Public Finance Reform Programme was implemented, and so were the related activities.

Result 3.3.1. Adopted medium-term framework for the implementation of internal financial control in the

public sector was not implemented within the given deadline, and neither were the related activities. For

the first three results, the responsible institution, in accordance with AP PAR, is MPALSG, and for the

last two, it is the Ministry of Finance.

Out of the total of 47 results in the AP PAR template for the full validity period of the AP PAR, the Ministry of Public Administration and Local Self-Government is the institution responsible for the implementation of 34 results, namely 28 results without state authorities within the Ministry (The Administrative Inspectorate is the institution responsible for the implementation of 1 result, and the Directorate for e-Government is responsible for the implementation of 5 results. The Ministry of Finance is responsible for the implementation of 8 results, the Ministry of Justice is responsible for the implementation of 1 result, the National Public Policy Secretariat is responsible for 3 results, and the Directorate for Public Procurements is responsible for 1 result.

Graph 3: Graphical overview of the institutions responsible for the implementation of results

under the AP PAR

Out of the total of 223 activities in the Action Plan for the period 2015-2017, a report was requested for

107 activities in 2015, even though some activities required continuous implementation throughout the

AP PAR period, including 2015 (99 activities for which the estimated deadline for completion of

implementation was either first or second half of 2015, and 8 continual activities: 1.1.3.1, 1.3.1.5,

1.3.1.6, 1.3.1.7, 1.3.2.7, 4.1.1.5, 5.2.1.6, 5.2.2.1).

Institutions responsible for AP PAR result implementation for 2015-2017

MPALSG 28r

DEG-MPALSG 5r

AI-MPALSG 1r

MoF 8r

MoJ 1r

NPPS 3r

DPP 1r

8 | A P P A R

Graph 4: Graphical overview of the number of activities planned for 2015, compared with the total number of

activities planned under the AP PAR for the period 2015-2017

In this Report, as well as in the previous semi-annual one, the status of specific activities will be presented at three levels (and with three colours), depending whether they are fully implemented (green), partially implemented (yellow), or not implemented (red). A fully implemented activity is the activity that is implemented as defined in the Action Plan. A partially implemented activity is the activity that is implemented by more than 50% of what is defined. A not implemented activity is the activity that is implemented by less than 50%.

Out of 107 activities that were monitored in the first and the second half of 2015, the Ministry of Public Administration and Local Self-Government is the institution responsible for the implementation of 72 activities, namely 60 activities without state authorities within the Ministry (the Directorate for e-Government is responsible for the implementation of 11 activities, and the Administrative Inspectorate is responsible for 1 activity). The Ministry of Finance is responsible for the implementation of 10 activities, the Ministry of Justice is responsible for 3 activities, the Anti-Corruption Agency is responsible for 1 activity, the National Public Policy Secretariat is responsible for the implementation of 16 activities, the Directorate for Public Procurements is responsible for 2 activities, and the General Secretariat of the Government is responsible for 3 activities.

2015-2017 52%

2015 48% 2015 48%

AP PAR Activities

9 | A P P A R

Graph 5: Graphical overview of the institutions responsible for the implementation of activities in

2015

Out of 107 activities planned for 2015, 40 activities were fully implemented, 23 activities were partially

implemented, and 44 activities were not implemented.

Graph 6: Graphical overview of activities implemented in 2015

Institutions responsible for the implementation of activities in 2015

MPALSG - 60а

DEG-MPALSG 11а

AI-MPALSG 1а

MoF- 10а

DPP - 2а

MoJ - 3а

ACAS - 1а

NPPS - 16а

GenSec -3а

37%

23%

40%

Activities Implemented under AP PAR for 2015

Implemented

Partially implemented

Not implemented

10 | A P P A R

No Public Administration Authority

Total number of

activities in 2015

Implemented Partially

implemented Not

implemented

1.

Ministry of Public Administration and Local Self-Government (with the Directorate for e-Government as the administration authority within the Ministry)

72 27 14 31

Ministry of Public Administration and Local Self-Government

60 22 12 26

Directorate for e-Government 11 4 2 5

Administrative Inspectorate 1 1

2. Ministry of Finance 10 2 3 5

3. Directorate for Public Procurements 2 2

4. Ministry of Justice 3 1 2

5. Anti-Corruption Agency 1

1

6. National Public Policy Secretariat 16 8 6 2

7. General Secretariat 3 3

Total number: 107 40 24 43

Percent: 100% 37% 23% 40%

Table 1: Overview of the total number of activities and the levels of progress made across the responsible institutions

Graph 7: Graphical overview of activities implemented, across the AP PAR responsible institutions, in 2015

MPALSG DEG AI MoF DDP MoJ ACAS NPPS GenSec

Implemented activities

Partially implemented activities

Not implemented activities

11 | A P P A R

II KEY ACHIEVEMENTS, PROGRESS AGAINST THE OBJECTIVES

According to the World Bank Report, published by the end of September of current year for preceding year, with regard to government effectiveness namely the perceptions of the quality of public services, the quality of the civil service and the degree of its independence from political pressures, the quality of policy formulation and implementation, and the credibility of the government's and commitment to such policies, in 2015 Serbia improved its rankings by almost 8 percentage points, from 50.72 to 58.175, which is a significant indicator and great appreciation of the efforts made in the previous period. This is the value expressed for the highest level of the AP PAR indicator, defined for the general goal of public administration reform (in accordance with the PAR Strategy) – “Government Effectiveness” that facilitates the measurement of the PAR long-term impact. The World Bank performs its measuring on annual basis and this measuring consists of the results of a larger number of indicators, some of which are based on expert analyses, and some of which are based on surveys. The report for this indicator is published every year in the end of September and contains the data processed for previous year. A similar success was seen in 2015 for an international indicator that is not monitored through AP PAR directly, but is of interest in view of the reform impact with regard to public administration and procedure simplification, namely the World Bank’s ‘Ease of Doing Business’ indicator (“Ease of Doing Business”), according to which Serbia was ranked 59 (1-189) in 2015, which was a rank improvement of 32 compared with the previous year.6 Serbia made the largest progress with regard to building permitting procedure and taxes – it is less costly to obtain a building permit when mandatory inspection of basic works is introduced, and the procedure for tax payment by businesses is simpler considering that a possibility of integrated electronic payment of taxes and contributions was introduced. On the other hand, property tax and environmental tax rates were increased. The progress that Serbia made in the World Bank’s Ease of Doing Business list is a positive signal for prospective investors contemplating the RS as their investment destination, but the two above mentioned indicators together are indicative for the results achieved in the implementation of the general goal of the AP PAR – improving the functioning of public administration and ensuring high quality of services for citizens and businesses, and creation of a public administration that would significantly contribute to the stability and the improvement of living standards.

With regard to the five goals (objectives) of the AP PAR, quantitatively the largest number of activities was implemented within the First objective: “Improve the organisational and functional subsystems of public administration“.

5 World Bank indicators: http://info.worldbank.org/governance/wgi/index.aspx#doc and http://data.worldbank.org/data-catalog/worldwide-

governance-indicators 6 See more about the indicator and the “Ease of Doing Business“ list at: http://www.doingbusiness.org/rankings

http://info.worldbank.org/governance/wgi/index.aspx#doc

http://data.worldbank.org/data-catalog/worldwide-governance-indicators

http://data.worldbank.org/data-catalog/worldwide-governance-indicators

http://www.doingbusiness.org/rankings

12 | A P P A R

Graph 8: Graphical overview of implemented activities for 5 APPAR special objectives in 2015

Namely, 14 results are monitored within the First objective – for 2 of the planned results the deadline was 2015, and for the remaining 12 just the progress is being monitored considering that the deadline for them was set for 2016 or 2017. Moreover, within the First Objective, out of 42 planned activities, 19 were implemented, 12 were partially implemented, and 11 activities were not implemented.

Result Target Value of the Indicator

for 2015 Actual Value of the Indicator in

2015 Level of progress made toward the result/indicator fulfilment

1.1.1. SIGMA - -

Not defined 6 Progress made

1.1.2 20% 0% Not fulfilled

1.1.3, 1.1.4, 1.1.5, 1.1.6,

1.2.1 Not measured in 2015

1.2.2. 37 LSGUs 0 LSGUs Not fulfilled

1.3.1. 20% 0% Not fulfilled

100% (progress of 5% compared with 2014)

Data not provided -

1.3.2.

SIGMA NPPS methodology: the level of deviation is by 7% below that in

2014 Fulfilled by 7%

SIGMA

Not measured in 2015 SIGMA

1.3.3. 50% (progress of 19%

compared with the 2014 BV)

39% (or progress of 8%) Fulfilled (78% of the TV set in

2015)

1.4.1. 2 0 Not fulfilled

3 0 Not fulfilled

5 increased by 1 5 Completed (progress of 2%

Objective 1 Objective 2 Objective 3 Objective 4 Objective 5

19

3 4

11

3

12

3 2

1

6

11

15

4 4

9

2015

. implemented activities

partially implementedactivitiesnot implemented activities

13 | A P P A R

1.4.2. compared with 2014) compared with the 2017TV )

10 (increased by 5 compared with 2014)

10 Fulfilled (progress of 15%

compared with the 2017 TV )

2 0 Not fulfilled

1.4.3.

15% (progress of 5% compared with 2014)

15% Fulfilled (progress of 20%

compared with the 2017 TV)

SIGMA:- DEG 10 (decreased by 5

days compared with 2014) DEG:10

Fulfilled (fulfilled 50% compared with the 2017 TV)

SIGMA:- DEG: 10 (increased by 3 services compared with

2014)

DEG: 10 Fulfilled (progress of 15%

compared with the 2017 TV)

Table 2: Progress made in the 2015 result-indicator relationship with regard to the First objective of the PAR AP

SIGMA indicators that are set for Specific objectives suggest a relatively low basic mark in 2014 for the measure in which overall structure of the ministry and other bodies subordinated to the central government is reasonable and coherent – 2 at the scale 1-5.7 Compared with total indicators and results achieved, this goal is critically important in view of economic stability, sustainable budget and fiscal consolidation, and the coordination of authorities and policy implementation. Two results which were planned to be implemented in 2015 were not implemented within the specified timeline. Result Indicator 1.3.3. Increased transparency of public policy management showed some progress: from the baseline value in 2014, namely the 31% share of draft laws for which the discussion took place within the drafting process in the total number of draft laws adopted at annual level, their share rose to 39% in 2015, although the 50% share was set as the target. The activities listed for the Result are implemented partially or not at all, although the Result rests on many more activities than what is planned in AP PAR. For the Result 1.4.1. Ensured coordinated management of e-government development with the establishment of institutional, and the completion of legal, framework, the indicators were not implemented. However, out of two activities, one (adoption of the Strategy for the Development of e-Government in the RS with AP) was implemented in December 2015, with some delay, and the other activity (setting up of a Work Group for e-Government within the Public Administration Reform Council) was not timely implemented, but formal adoption of relevant decisions and the Decision on Setting Up of the Work Group is now in progress.

Out of the total of 24 indicators for 14 results under the First objective 14 indicators were not monitored for 2015. Six of them are SIGMA indicators and, for the remaining 8, either the defined monitoring frequency is two years or no progress was expected in 2015.

For the first four results related to functional analyses, the optimisation of the number of employees and the number of authorities in the public administration indicators suggest that internal structure and organisational form changed for 6 organisational forms: the Ministry of Economy conducted a functional analysis and changed the internal structure – 3 agencies were extinguished (the Agency for Foreign Investments and Export Promotion - SIEPA, the Agency for Privatisation, and the National Agency for Regional Development) and the number of employees was decreased by 109 in the Ministry of Economy public policy portfolio (by 9%, which is below the maximum number defined under the Decision and the Law on the Method for Determining the Maximum Number of Employees in Public Sector). Moreover, some court competences were shifted to notaries and bailiffs (the enforcement of final and enforceable judgments (bailiffs) and notarisation functions were relocated and assigned to

7 SIGMA document with baseline values for Serbia, for 2014 (“The Principles of Public Administration – Serbia April 2015, Baseline

Measurement“) is available from: http://www.sigmaweb.org/publications/Baseline-Measurement-2015-Serbia.pdf For this specific indicator, see page 60 of above document (ПЈУ4).


14 | A P P A R

private sector). National Agency for Spatial Planning ceased operations and its tasks are now performed by the Ministry of Construction, Transport, and Infrastructure. Also, Rightsizing Phase 1 is completed (the Law on the Method of Determining the Maximum Number of Employees in Public Sector is adopted) and, in parallel with this, diagnostics were run within the World Bank/European Commission project, through the horizontal functional analysis of 96 organisational forms. Horizontal functional analysis of public services (education, healthcare, social welfare) is now in progress. The indicator relating to The percent of recommendations from the conducted FA that were accepted by the Council for PAR was not fulfilled, although it was expected that it will be fulfilled considering that Draft ToR was prepared for the implementation of the recommendations stemming from functional analyses that were conducted.

Regardless of the fact that indicators do not suggest a satisfactory level of progress with regard to delivering the results, a large number of relevant activities have been implemented and thus a kind of analytical base has been created for the delivery of results and the implementation of functional analyses or analytical approach to optimising and rightsizing the number of employees and the number of authorities.

The six-month project entitled “Creating Conditions for Organisational and Functional Restructuring of Public Administration in RS“ was successfully completed. Its main goal was to provide a general functional overview of the public administration in Serbia, as well as the analytical, strategical, and methodological guidelines for the second phase of the optimisation. The Project is funded by the European Commission. It started operations in October 2014 and ceased in April 2015. There are three outcomes of the analysis: the implementation of systemic functional analyses of the overall public administration system: ‘a look from above’ to detect any deficiencies in organization and provide recommendations; comparative analyses of healthcare and education systems in 5 selected EU Member States and the RS; strategic effectiveness analysis for selected public administration authorities (the National Employment Service, the Human Resource Management Service, four Government services: the General Secretariat of the Government, the Office for Cooperation with CSOs, the Office for Human and Minority Rights, the Air Service of the Government). Based on above analyses, Phase II was started in public administration rightsizing and restructuring, as defined through the EU funded and World Bank implemented IPA 2014 Project with the aim to implement: the “State Plus” horizontal functional analysis (includes the analysis of functions, organisation and employees in all ministries and state administration bodies, and in other national-level authorities and organisations that are formally outside the state administration system but carry out related tasks (agencies, in the general sense) and organisations of mandatory social insurance), and the vertical functional analyses (Ministry of Finance, Ministry of Agriculture and Environmental Protection), as well as the provision of public services (healthcare, education, social welfare) and the analysis of the mechanisms for coordination between the central and local governments. The goal of the Phase II is to identify any overlapping of powers and responsibilities, and to provide recommendations for a better division of tasks between the ministries and the authorities which are within their respective purviews, namely to improve the internal organisational structure of public administration authorities. For the analyses that will focus on the horizontal function of service provision in the selected sectors (education, healthcare, social welfare, etc.), the goal is to provide recommendations with regard to the optimisation of financing, employees, and the network of organisations which provide services to citizens directly, namely to analyse the mechanisms for coordination between central and local government authorities and the role of deconcentrated structures (district offices), inter-municipal initiatives (such as regional agencies), and other actors. The Phase I of the “State Plus” is completed - the relevant report was presented to the Minister of State Administration and Local Self-Government on 6 October 2015 and a Draft ToR for the implementation of recommendations has been developed. Now in progress are the development of the preliminary report for Phase I and the definition of the horizontal

15 | A P P A R

functional analysis for Phase II. On the basis of the analysis of 96 organisational forms and institutions, a base/application containing an overview of all institutions included in the horizontal functional analysis has been developed (a software solution for support to reporting and structure of employees in the State Plus) For the in-depth functional, vertical analysis of the Ministry of Finance component, consultants have been selected, methodology has been determined, and data collection is now in progress. For the in-depth functional, vertical analysis of the Ministry of Agriculture and Environmental Protection component, a meeting was held between the Minister for Agriculture and Environmental Protection, the operational team, and the World Bank; the World Bank team held a number of meetings with all organisational forms of the Ministry for data collection purposes; a presentation of the methodology used to carry out functional analysis was delivered at the Ministry and the starting date for the work on functional analysis was set for the beginning of March 2016. For the Public Services Provision component, consultants have been selected, methodology has been determined for healthcare, education, and social welfare, and data collection is now in progress. Preliminary analyses for education and healthcare have been obtained and the work for the area of social welfare has started. Intertwining with these projects, and concurrently with them, the process of public administration rightsizing was implemented, primarily in view of fiscal consolidation, adequate structure, and optimum number of employees in public sector. Based on the findings of previous analyses resulting from the rightsizing phase, with the participation of line ministries and local experts, the Public Administration Optimisation Programme was prepared. The purpose of this Programme is to present the concept of public sector optimisation in the coming three-year period, this being one of the fundamental components of public sector structural reforms that should identify the manner, timelines, and measures for reducing the number of employees without threatening the effectiveness and functionality of the pubic administration system, as well as for performing, through functional and organisational restructuring, the reorganisation of the public sector. The purpose of the analyses conducted with the participation of line ministries was to develop the criteria and recommendations which should facilitate the adoption of rules on determining the maximum number of employees to support the implementation of the Law on the Method of Determining the Maximum Number of Employees in Public Sector.

In accordance with the recommendations derived from the two previous processes, the Public Administration Reform Council issued the Opinion on the basics for the Public Administration Optimisation Phase I – Public Administration Rightsizing, in 2015, and recommended to the Government that, within the public administration optimisation process in the coming three-year period, adopt a proposal of the law, based on integrated principles, to regulate the reduction of the number of employees, namely the reduction of labour costs in public administration, and define the measures to effectively ensure that optimum number of employees is maintained. The Ministry of Public Administration and Local Self-Government prepared a draft law on the method of determining the maximum number of employees in public sector. The Law was adopted on 31 July 2015 in the National Assembly and published in the Official Gazette of the Republic of Serbia No 68/15. Pursuant to the Law, on 2 December 2015, the Government passed the Decision on the Maximum Number of Employees in the Systems of State Bodies, Public Services, Autonomous Province of Vojvodina, and Local Government, for 2015. Now in the phase when opinions are collected is the Proposal of the Regulation on Data Collection during Rightsizing Process, complete with forms and instructions for filling out the form, specifying in more detail the data submission method and data types necessary to pass the Government Act on the Maximum Number of People in Unlimited-Term Employment with State Bodies, Public Services, Autonomous Province of Vojvodina and Local Government System for the calendar year, including the deadlines to submit the data. A proposal of the decision to be adopted by the Government has been developed, imposing the obligation on the ministries to, before 29 February 2016, draft the Guidelines for Reorganisation and Modernisation of organisational forms within their respective purviews, and to, before 31 March 2016, develop draft programmes for reorganisation and modernisation of the organisational forms within their respective purviews. With respect to the external

16 | A P P A R

monitoring of the process implementation, a selection has been made (by public call, in accordance with the Law on Public Procurement) of an external evaluator (CIF - Centre for Investments and Finance) who shall submit, within six months, a report about the implementation of the Law and Decision on the Maximum Number.

At the same time with the above Law, the Law on the Register of Employed, Elected, Appointed, Designated, and Engaged Persons in the Users of Public Funds was adopted (Official Gazette of RS, No 68/15 of 4 August 2015). This Law transferred the responsibility for keeping the Register from the Directorate for the Treasury to the Ministry of Public Administration and Local Self-Government, and its Article 7 provides that, for the purposes of verifying the accuracy of data submitted, the state authority in charge of keeping the Register shall establish electronic communication and data exchange with other suitable registers, and particularly with the Central Register of Mandatory Social Insurance and the Tax Administration. The adopted Law may be deemed to be a phase in the implementation of the activities within the establishment of regulatory framework for the Register as defined in the AP PAR.

Within the First objective, the implemented activities related to the improvement of planning process in state administration authorities: the Action Plan for the Implementation of the Government Programme Based on the Priority Activities of the Government in its Mandate Period, comprising 98 identified middle-term strategic goals and corresponding measures and activities for their implementation, was prepared and adopted, and an analysis was conducted of the existing IT capacity and recommendations were issued with the aim to create an integrated IT solution which would interconnect the planning and budgetary processes and facilitate the plans and budget execution based reporting. The preparing process and the content of the Government Annual Operational Plan for 2015 were improved and, in cooperation between the General Secretariat and the National Public Policy Secretariat, the Instructions for Preparing the Government Operational Plan for 2015 were reformulated and, on the occasion of preparing the Government Operational Plan for 2015, all ministries were requested to plan based on the goals, measures, and activities which they have identified within the process of preparing the Action Plan for the Implementation of the Government Programme and the Programme Budgeting. Result Indicator 1.3.2. Medium-term and annual planning in the state administration authorities is based on the Government's priorities and programme budgeting, and its implementation is regularly monitored, suggests that progress was made: “The percent of he total number of implemented activities deviation from the total number of activities defined in the Government annual operational plan” is smaller, namely from 49% in 2014 it was reduced to 34% in 2015. The indicators related to the establishment of an integrated system for public policy management were not fulfilled in 2015, but many activities were implemented and that is a good base for the fulfilment of above result in the coming year. In this context, in 2015 the NPPS drafted a proposal of a set of regulations consisting of: The working versions of the Law on the Planning System in the Republic of Serbia and two accompanying regulations: the Regulation on Medium-term Planning, and the Regulation on Public Policy Management, the Impact Analysis of Public Policies and Regulations, and the Content of Individual Public Policy Documents, which will regulate the planning system in the RS and the management of public policy system. Concurrently with drafting this set of regulations, the NPPS worked on establishing a strategic framework for the public policy system management and regulatory reform and, after several months of consultations with stakeholders and public discussion were conducted, it prepared the Strategy for the Regulatory Reform and the Improvement of Public Policy System Management for the period 2016-2020, as well as the Action Plan for its implementation for the period 2016-2017. The main purpose of the Strategy is to, in the period before 2020, implement a comprehensive reform of the public policy management system (public policy planning, analyses, creation, enactment, implementation monitoring evaluation, and coordination), and to ensure continual implementation of regulatory reform mechanisms with the aim to improve the quality of regulations as

17 | A P P A R

the instruments for public policy implementation and, accordingly, to ensure the improvement of the quality of public policies as such. The Strategy and the Action Plan were adopted at the meeting of the Government held on 23 January 2016. Also, the NPPS has initiated the setting up of a Project Group consisting of the Ministry of Finance, the General Secretariat of the Government, the National Legislation Secretariat, the Office for EU Integrations, and the NPPS, with the aim to develop the legal acts to regulate the public policy management system and establish the integrated planning and budgeting system, thus precisely defining the roles of the ‘Centre of the Government’ key institutions in the planning system. Strategic framework for the implementation of e-government related activities in the Republic of Serbia has been completed by adopting, in December 2015, the Strategy for the Development of e-Government with the Action Plan (Official Gazette of RS, No 107/15).

The Second objective: “Establishing a balanced, merit-based public service system and improving HR management” includes 16 indicators associated with ten results (three indicators are Sigma indicators and Sigma will perform measurement for 2015 in 2016; however, at the time of producing this Report there were no actual values for given indicators, while monitoring frequency for nine indicators is two years). The indicator shows progress in only one case (Result 2.2.1.) Elementally improved basic elements of HR management with the aim of preventing further recruitment politicisation, quality employee attrition and attracting quality candidates to work in state administration bodies), whereas no implementation progress was identified with other results. A similar situation can be applied to the activities: out of 21 planned activities, 3 have been implemented, 3 partially implemented, while 15 activities have not been implemented at all.

Result: Indicator target value

for 2015 Actual indicator value in 2015

Results/indicators achievement level

2.1.1.

Not measured in 2015

2.1.2

2.2.1.

20% more than in 2014 (7 candidates per competition in

2014) 5 candidates per competition in 2014 Not achieved


2.2.2. Not measured in 2015

2.2.3.

SIGMA Not measured in 2015

SIGMA HRMS 69.7% in comparison to

82.9% in 2014 (employment restriction)

TV for 2017 is 87% (favouring open competition)

2.3.1.

30% 0% Not achieved


2.3.2.


5 0 Not achieved

18 | A P P A R

2.3.3. 100 LSGUs, one meeting 0 Not achieved




Table 3: Progress made in the 2015 result-indicator relationship with regard to the Second objective of

the AP PAR

The result 2.2.1, Elementally improved basic elements of HR management with the aim of preventing further recruitment politicisation, quality employee attrition and attracting quality candidates to work in state administration bodies), fulfils the precondition for implementing the anticipated activities and outcomes under the specific objective - analysing the shortcomings of the system of recruiting, assessing, promoting and performing responsibilities of civil servants and providing baselines for the first phase of the system improvement by amending the Law on Civil Servants. The activity was implemented within the foreseen deadline. The following document has been developed: “Civil Service System Reform – Baselines”, which proposes basic ideas for future amendments to the Law on Civil Servants. A Draft Law on Amending the Law on Civil Servants has been drawn up, and it is in the procedure of collecting the opinions from ministries in charge.

As regards the Result 2.3.2. which was supposed to be completed by the end of 2015: Established regulatory framework for developing the HR management functionality in the AP and LSGUs, the indicators show that the Result was not implemented even though the conditions for its achievement were in place by implementing two out of five foreseen activities – a Draft Law on Employees in the Autonomous Provinces and Local Self-Government Units was drawn up, submitted to the Parliament for adoption and the Strategy for Professional Development of Employees in Local Self-Government Units in the Republic of Serbia was adopted on March 12, 2015. The Strategy provides main guidelines for establishing a balanced, long-lasting and sustainable system of professional development of the employees in the LSGUs, which is aimed at accomplishing the objectives of the public administration reform in its entirety. This activity contributes to strengthening the administrative capacities in town and municipal administrations. Apart from providing an overview of the existing situation and problems, the Professional Development Strategy also defines the concept of establishing a unique system of employee professional development in the LSGUs. It also outlines various professional development programmes, a method of co-ordination between state and local government bodies in this particular area, as well as a funding model for developing and implementing the professional development programmes.

As for the Result 2.3.1, Established foundations of the professional development system of the employees in public administration bodies and organisations by means of organising and establishing a Central Institution for Professional Development, the indicator points out that the Result has no progress trend even though certain activities were initiated in order to lay down the base for providing a legal framework for the said institution (representatives of the competent institutions met during May 2015 with the aim of identifying steps that need to be taken to implement these activities. Consultants from the Regional School of Public Administration were hired in November 2015 to draft a Road Map for establishing the Central institution for professional development, along with a cost estimate for phased establishment of the institution. From December 2015 to March 2016, the UK Government provides support to the MPALSG through the “Good Governance Fund“ and the “Towards a Central Training Institution for Public Servants“ project with the aim of analysing and mapping the existing HR and public policy capacities, i.e. estimating the existing situation for the purpose of identifying the basic idea for

19 | A P P A R

efficient targeting of future users and prioritising training sessions and programmes of the future institution).

Currently, activities are being undertaken in order to develop a uniform regulatory framework for tuning up the payroll system in the public administration (the Ministry of Public Administration and Local Self-Government has drawn up a Draft Law on the Public Sector Payroll System) by means of introducing a consistent payroll system based on the transparency and fairness principle, as well as the principle of “equal pay for equal work”. A comprehensive process of creating a Catalogue of the Public Sector Posts is running in parallel to drawing up the Draft Law on the Payroll System for the purpose of preparing a list and description of all posts, i.e. jobs being done in the entire public sector. The MPALSG has prepared an Instruction on how to prepare the Catalogue, on tasks and competencies of line ministries related to the Catalogue and a working draft Catalogue. Currently, the activities regarding the Catalogue development are coming to an end in the working groups responsible for specific areas (health, education, culture, sports, social welfare, state bodies, autonomous provinces and local self-government units) along with all the ministries in charge of public services, state bodies where the regulations on civil servants are applied, representatives of local self-government and autonomous province. These activities are co-ordinated and supported by the MPALSG by hiring a technical consultant. After developing the Catalogue of the Public Sector Posts and Titles, the next stage may commence, during which all public sector posts will be evaluated for the purpose of identifying their correlation.

Baseline values that SIGMA introduced for indicators which are set as Specific objective 2 for 2014 in the AP PAR (the Measure under which a public policy framework and a legal framework for professional and coherent state administration are introduced and applied (PPA 3) BV:4; the Measure under which the institutional governance allows for implementing consistent practices of HR management in the entire state administration (PPA 3) BV:2; the Measure under which the payroll system for civil servants is fair and transparent and applied in practice (PPA 3) BV:4)8, on a scale from 1 to 5, are extremely high in two cases, but it should be noted that SIGMA indicators are used to measure the payroll system on a state administration level and the AP PAR tends to expand such a system onto the public administration. Under the Third objective: “Improvement of public finance and public procurement management“, eight results and thirteen indicators have been anticipated to be achieved. Out of 10 planned activities, 4 have been implemented, 2 partially implemented, whereas 4 activities have not been implemented at all. Two out of these 13 indicators are SIGMA indicators, and as for the indicators related to Result 3.3.2. The Ministry of Finance submitted comments which point out that the indicator The percentage of the beneficiaries of public funds at central level in which the managers of the main/specific organisational units and administrations within are reported to/informed on a monthly basis about financial liabilities and spending of the funds from the institution’s allocated budget cannot be monitored on an operational level. Furthermore, a framework for irregularities management by the beneficiaries of public funds will be defined in the Financial Management and Control Handbook by the end of 2016 for the indicator A total number of irregularities that are reported to the budget inspection in comparison to the baseline value, i.e. the deadline for determining indicators (2015) is inconsistent with the deadline for enacting the legislation regulating the irregularities (Q4 of 2016).

The anticipated implementation time frame for two results was 2015, namely for Result 3.1.1. Adopted Public Finance Reform Programme, which was implemented, as well as its planned activities by adopting the Public Financial Management Reform Programme 2016-2020, whereas the Result 3.3.1 Adopted medium-term framework for the implementation of internal financial control in the public sector,

8 A SIGMA document containing baseline values for 2014 for Serbia (“The Principles of Public Administration – Serbia April 2015, Baseline

Measurement“) is posted on the following link: http://www.sigmaweb.org/publications/Baseline-Measurement-2015-Serbia.pdf In particular, pages 44 and 49 of the said document (PPA3) for the given indicators.


20 | A P P A R

was not implemented within the given deadline, as well as its foreseen activities. Two indicators that are included in Result 3.5.1, which refer to the improvement of the public procurement system, show progress when compared to the set objectives, accompanied by fully implemented activities in this area. Amending the Public Procurement Law twice in 2015 (“Official Gazette of the Republic of Serbia" 14/15 and 68/15) contributed to improving the provisions stipulated under the previous law for the purpose of better implementation of the public procurement principles, greater transparency and efficiency of public procurement procedures. The harmonisation level of the Public Procurement Law with the EU regulations has been increased (by adopting directives 2014/24 / EU and 204/25 / EU). Additionally, the public procurement portal functionality has been improved by announcing procurement plans and modified procurement plans developed by contracting authorities. The search option of the Portal was improved by introducing the function “quick search” that met the requirements of many users to simplify the search of the Portal by using main activities defined in the Glossary of Common Procurement Terms, and simultaneously this option allows less experienced Portal users to find more easily the public procurement they are interested in. Apart from the above, an English version of the Portal was made. The Portal can be found on the following link: http://portal.ujn.gov.rs/

Result: Indicator target value for

2015 Actual indicator value

in 2015 Results/indicators achievement level

3.1.1. 0% 92% Achieved

3.2.1.

100% (in comparison to

13% in 2014) 100% Achieved (progress of 87%)

40% (in comparison to 0% in 2014)

61% Achieved (progress of 87.14% in comparison to

the 2017TV 70%)


42.06% Achieved (progress of 87.14% in comparison to

the 2017TV: 60%)


3.3.1. Yes No Not achieved

3.3.2. The indicator is not monitored


3.3.3. SIGMA Not measured in 2015

SIGMA Not measured in

2015

3.4.1. 22 (in comparison to 20 in

2014) 86 Achieved

3.5.1. 5-10% more 15% more Achieved

500% more an increase of 784% Achieved

Table 4: Progress made in the 2015 result-indicator relationship with regard to the Third objective of the

AP PAR

Financial aid programming began in Serbia for the first time in 2015 through the EU Budget Support in compliance with the commitment to directing the IPA II funds towards financing the implementation of

http://portal.ujn.gov.rs/

21 | A P P A R

coherent sector strategies instead of individual projects. The public administration and public finance reform sector has been assessed as the most eligible sector for programming such financial support, whereas sector budget support planning is based on the Action Plan for the Implementation of the Public Administration Reform Strategy. Under the Fourth objective: “Strengthening legal certainty and improving business environment and the quality of providing public services,“ nine results have been foreseen to be achieved and monitored by means of 13 indicators (one of them is a SIGMA indicator along with eight others whose measurement frequency is envisaged to be done every two years). Out of 16 planned activities, 11 have been implemented, 1 partially implemented, while 4 activities have not been implemented at all. The indicators draw attention to the progress that was made in terms of the number of draft laws which were complied with the adopted methodology for analysing the effects of the regulations submitted to the NPPS for opinion, on an annual basis - from 53% in 2014 to 66.9% in 2015 (for Result 4.1.1. Improved and transparent process of making and implementing legislation in a manner which ensures interdepartmental co-ordination, public participation and perusal of potential effects, implementation monitoring, evaluation and reporting on the implementation of the legislation) along with the adoption of the Strategy on the Regulatory Reform and Improvement of the Public Policy Management System for 2016-2020 and an Action Plan for its implementation during 2016-2017, and the preparation and conducting of training sessions for civil servants related to examining the implementation effects of regulations. Therefore, in terms of improving the process of drawing up and perusing potential implementation effects of the regulations during the first half of 2015, the NPPS developed and carried out a detailed training programme for civil servants which contained three modules, one of which referred to an analysis of public policy effects. The whole programme was organised and conducted in three cycles with a total number of about 35 civil servants (managers and employees) who underwent the training sessions. Apart from these, the NPPS devised and participated in conducting training sessions related to examining the effects of regulations and public policy documents, and it also carried out training courses in respect of improving the legislative process for 2015. All these training sessions were a part of the general professional development programme of managers and civil servants carried out by the Human Resource Management Service in co-operation with various state administration authorities. Approximately 70 participants (managers and civil servants) completed all training sessions. All conducted training courses, as well as other modules for which training sessions were organised during 2015 (planning, monitoring, reporting and assessing techniques) contribute to improved professional knowledge of civil servants about examining the implementation effects of the regulations and public policy documents and improving the legislative procedure.

Result Indicator target value for

2015 Actual indicator

value in 2015 Results/indicators achievement level

4.1.1.


66.9% Achieved (progress made in comparison to the 2017TV:

65% is more than 100%)


4.2.2. 3 (in comparison to 1

in 2014) 3

Achieved (progress made in comparison to the 2017TV: 25 and in comparison to the target value is 8%)




The indicator is not monitored

22 | A P P A R

4.3.1. 800 (in comparison to

0 in 2014) 1296

Achieved (86.4% in comparison to the outcome for 2017/ 1500)

4.3.2.

12 (in comparison to zero in 2014)

33 Achieved (91.6% in comparison to the outcome for 2017/

36)




Table 5: Progress made in the 2015 result-indicator relationship with regard to the Fourth objective of the AP PAR.

The indicators show significant progress in terms of inspection oversight (for results 4.3.1. and 4.3.2.). Namely, the Law on Inspection Oversight was drawn up and adopted on 15 April, 2015 (“Official Gazette of the RS”, No. 36/15). All secondary legislation was prepared and a Decision on establishing the Coordination Committee was adopted on 23 July, 2015 (“Official Gazette of the RS,” No. 66/15) and has been in effect since 4 August, 2015. The reason for passing the Law was a lack of a separate systemic law that would govern inspection oversight. Previous analyses showed that individual areas of inspection oversight were the subject matter of approximately 1000 laws, regulations, rulebooks and other secondary legislation, which in turn resulted in noncompliance, incompatibility and collision of legal principles and significant differences in practice, altogether contributing to legal uncertainty, unpredictability, unnecessary economic costs and inefficient allocation of public resources. The analyses also showed that there was a lack of sufficient quality precautionary measures in this area, thus the inspection took steps only after detrimental effects had occurred. Furthermore, the aim was to define the methodology of inspection oversight actions, powers and responsibilities of those performing the oversight, coordination of inspection activities and better usage of inspection resources by enacting a separate law. The Law application has been deferred (the entry into force commences on 30 April, 2016), but the provisions related to the oversight of unregistered entities came into effect on 30 July, 2015 with the aim of reducing the scope of gray economy. According to the data provided by the Business Registers Agency, 3,840 entrepreneurs were registered in August 2015 alone, which was the first month of the oversight of the activities performed by unregistered entities in accordance with the Law on Inspection Oversight, which has been by far the largest number since the beginning of 2014. In comparison to August 2014, the number of newly registered entrepreneurs (the month immediately before the application) is greater by 1,602 in August, which is an increase of 71.6%. With the aim of coordinating inspection oversight and mutual cooperation among inspection entities, the Coordination Committee was established by the Decision on establishing the Coordination Committee adopted on 23 July 2015 (“Official Gazette of the RS”, No. 66/15). It has been applied since 4 August 2015. The purpose of establishing the Committee was to introduce an institutional framework with the aim of conducting more comprehensive and efficient inspection oversight and avoiding overlapping and unnecessary oversight repetition. The coordination of inspection oversight contributes to reducing administrative burden of the economy, citizens and inspection and establishing the sustainability of the new circumstances. A Technical and Methodological Instruction on the Oversight of Unregistered Business Entities and Technical and Methodological Guidelines for Inspection Entities on How to Perform Inspection in a Living Place during Inspection Oversight were developed and posted on the MPALSG website and submitted to all inspection entities http://www.mduls.gov.rs/inspekcijski-nadzor.php. According to a Decree No. 119-01-194/2015-04 adopted on 6 October 2015 by the Inspection Oversight Coordination Board, working groups and expert teams for specific areas, i.e. specific inspection oversight issues, were set up under the Coordination Committee. Seven working

http://www.mduls.gov.rs/inspekcijski-nadzor.php


23 | A P P A R

groups were set up and became operational: A working group for combating illegal trade; for buildings safety; for food; for protection of natural resources; for public health; for catering and for internal control. Two expert teams were formed too: An Expert Team for combating undeclared work (“work under the table”) and an Expert Team for the transport of passengers and goods by road, rail and through waterways. A Coordination Committee website has been created: www.inspektor.gov.rs,which contains all documents related to the work of the Coordination Committee, video materials from the training sessions for inspectors, links to the published control lists of the state inspection entities, contact information on the state inspection entities, etc. The Coordination Committee held its first session in August 2015, adopted the Rules of Procedure 15 days after the entry into force of the Decision and started performing activities and tasks, i.e. operating smoothly, accomplishing co-ordination and improvement of inspection efficiency, primarily in terms of unregistered entities and with regard to the preparation of the Law application. The Coordination Committee consists of two bodies: The Council (at ministerial level) and the Inspection Oversight Coordination Board (at the level of state inspection managers). In 2015, the Board held four sessions, while the Council held one meeting.

A Manual for the Law on Inspection Oversight was drawn up and training sessions “A Trainer for Trainers” were conducted for about 220 inspectors.

A Draft Law on General Administrative Procedure was defined under this objective.

As regards the Fifth objective: „Increasing citizen participation and transparency, improving ethical standards and accountability while performing public administration duties“, out of 18 planned activities, 3 have been implemented, 6 partly implemented, whereas 9 activities have not been implemented at all. Five results have been anticipated to be achieved and monitored by means of eight indicators (out of which two are SIGMA indicators, while three indicators are not to be monitored during 2015). One of the indicators that were not set properly at the beginning of the AP PAR planning, which was clearly proven while developing the Passports’ indicators, is the indicator which is used to monitor Result 5.1.1. (All information on the public administration performance is available on the Internet and uniformly presented), measured on the basis of a reduced number of complaints submitted to the Commissioner for Information of Public Interest. As far as this result is concerned and with regard to proactive information publishing, the purview of the Commissioner includes the very monitoring of publishing a single document, i.e. the Information Booklet. The Commissioner monitors the implementation of this legal obligation ex officio or upon receiving a request (not a complaint). According to the information obtained from the Commissioner, the number of reports in the previous period due to the unpublished Information Booklets was rather small: 5 in 2011, 2 in 2012, 1 in 2013, 2 in 2014, and 4 in 2015 lodged by citizens (out of 6). The indicator “A reduced number of complaints submitted to the Commissioner for Information of Public Importance“ is related to the complaints lodged by the persons who were not provided information by public authorities, i.e. were not able to exercise their right of access to information upon the submitted request, since the initial assumption was that better online accessibility of information should reduce the number of individual requests for information from the authorities, and accordingly reduce the number of complaints filed with the Commissioner. In other words, complaints were not submitted to the Commissioner due to online unavailability of information, but rather because of the accessibility of the information of public importance, administrative silence, etc, while on the basis of access to the Commissioner’s annual reports and the progress made during the previous three years (2014 Report on Implementing the Law on Free Access to Information of Public Interest and the Law on Personal Data Protection), the trend indicates an increase instead of a decrease in the number of complaints filed with the Commissioner.

http://www.inspektor.gov.rs/

24 | A P P A R

Result Indicator target value for

2015 Actual indicator value in

2015 Results/indicators achievement level

5.1.1.

10% increase (2014 BV: 56.6%)

48.13% Not achieved

The indicator is not suitable for results monitoring

5.1.2. SIGMA Not measured in 2015

5.2.1.


Around 70 79 Achieved (the TV for 2017

is about 70)



5.3.1. 5 5 Achieved (TV: five in 2017)

5.3.2. 10% more 15.5% less oversight + 27% more complaints

Achieved (2017TV: 10% increase)

Table 6: Progress made in the 2015 result-indicator relationship with regard to the Fifth objective of the AP PAR

The Whistle-blower Protection Law was passed in November 2014, whose entry into force was deferred until 5 May 2015, but the activities pertaining to strengthening the capacities for its application - mainly with regard to judges - were undertaken before the Law application. Since the Law adoption, training sessions for 853 judges (from the Supreme Court of Cassation, appeal courts, the Administrative Court, high courts, basic courts, misdemeanour courts and the Misdemeanour Appellate Court) were conducted within six months; a Manual for the Whistle blower Protection Law has been developed. A media campaign has been conducted and the public has been introduced to the novelties that the Law brings into the Republic of Serbia judicial system since the beginning of the Law application. The Human Resource Management Service developed a training plan and programme entitled “Whistle blower Protection”, which is a part of the General Continuous Professional Development Programme (the programme area is anti-corruption) that was adopted on 31 March, 2015 under the 2015 Rulebook on Establishing the General Continuous Professional Development Programme for Civil Servants from State Authorities and Government Services. In accordance with the adopted programme, the “Whistle blower Protection” training was conducted on three occasions: 25/8/2015, 13/11/2015, 10/12/2015. The total number of participants was 62, while all civil servants were the target group.

The strengthening of the legal framework under this objective for the authorities that perform administration external control has been deferred until the second quarter of 2016 in compliance with rescheduling the deadlines according to the Action Plan final version for negotiation chapter 23, but working groups have been set up and law preparation is in place.

25 | A P P A R

III KEY CHALLENGES AND PRIORITIES IN 2016

Challenges and priorities:

• the necessity to redefine the Action Plan for the purpose of adjusting or redefining

the indicators, activities and realistic deadlines for the reform processes

• better public policy planning process

• defining the scope of the reform – providing the definition of the public sector and

public administration as well as a clear definition of competencies of all included in

the process

• better co-ordination and non-overlapping of certain jobs and functions providing more

efficient performance

• the necessity of strengthening the capacities as administration is not relaying enough

on its own capacities

• HRM Reforms in the focus of 2016 reforms

• in M&E system Reports have to be used as an early warning system with the aim of

providing a timely response on not implemented activities

The key challenges facing the AP PAR implementation (reasons for deviating from the plan) are at the same time priorities for the following year.

One of the key challenges of the entire public administration reform process is to define the reform scope (definition of public sector and public administration). The PAR Strategy has introduced the term “public administration”, but it has not clearly defined its boundaries and concept. The processes that took place simultaneously led to ambiguities and inconsistencies (the development of the indicator Passport showed that indicators set for certain results (particularly in case of international indicators) perform the reform measurement at state administration level, while the results are expected to generate reforms implemented at public administration level).

The development of the Passports’ indicators showed that certain indicators were not set properly and did not reflect the result achievement, or that some cannot be measured as it has been described in previous sections. Thus, it is necessary to work on developing the Passports’ indicators simultaneously with planning activities and results during the next planning cycle, and start with the AP legal adopting procedure only after the adjustment of the Draft Action Plan and Passports’ indicators. AP PAR Monitoring Reports shows that even during the planning process certain deadlines were set too ambitiously, as well as many parallel activities that had to be prioritised in practice, which in turn resulted in delayed implementation of results and activities. Taking into consideration the arrangement with the IMF and the fiscal consolidation process, priority activities in 2015 were focused on staff optimisation and the public administration remuneration system with a consequence that the development part of the HRM was not a priority in 2015. The indicators show that the weakest part were the results pertain in the Second objective of the AP PAR, whose activities should be a priority in 2016 (regulating HRM and establishment of a balanced, merit-based public service system: employment, performance-based promotion, professional development connected with all segments of the HRM cycle

26 | A P P A R

and in particular with performance-based promotion and the payroll system, career guidance, retention policy, dismissal procedures, etc.). Furthermore, an example of HRM at local level from the Second objective results shows that neither numerous activities were undertaken nor a large number of results were generated offering an explanation that funds and necessary resources expected from the Council of Europe Project/EU IPA 2012 were not provided. Not so good side of the long-term employment restrictions along with the new rightsizing process and increased workload and new competencies in the EU integration process is that the administration frequently resorts to outsourcing (contracting external individuals or companies to provide certain services), and to projects avoiding to rely on its own capacities, risking a lack of a learning process and keeping the know-how in the administration. Practice and monitoring of the AP PAR indicates a large number of parallel records, reports, documents and functions overlapping in the Republic of Serbia, which need to be resolved with better co-ordination and consolidation, document merging, interconnecting/interoperability of the existing databases. One of the examples was creation of a data base of the Special Professional Training Programmes at the level of state authorities within the MPALSG in accordance with the Decree on Professional Training of Civil Servants adopted in March 2015, alongside with the existing Central HR Data base and the Data base of General Professional Training Programmes in the Human Resource Management Service. Another example is planning process of preparation of three documents for the Government planning activities whereby state institution needs to fill the same data using three different methodologies. All state authorities undergo the planning and reporting process of: The Action Plan for the Implementation of the Government Programme coordinated by the NPPS, the Annual Government Work Plan coordinated by the General Secretariat and the Programme Budget coordinated by the Ministry of Finance. Recommendation is to merge these three documents and processes in one. Another frequently cited reason for deviating from the plan is the duration and scope of consultations: inter-sector consultations, consultations with the European Commission, the consultation process with the interested parties in the RS: business associations, non-governmental sector, etc. Not only the formally prescribed procedures for public consultation are held, but a document is often exposed to several cycles of informal consultations with all interested parties during the preparation process, which requires additional time and resources for the process co-ordination and processing the comments. Better process planning, better time-planning and earlier starting the consultations, strengthening the capacities of the state authorities by conducting training sessions, coherent internal procedures, utilization of best practices may all be solutions to the indicated problems. The examples of the necessity and conducting of extensive interdepartmental consultations, because of the scope of activities, are the preparation of a Law on Salaries and a Law on Civil Servants. According to the conducted analysis, it has been concluded that the payroll system is fragmented and incoherent, that there are more than 20 different regulations and 18 public agencies that individually regulate their salaries on the basis of separate enactments; about 900 different coefficients, 12 bases for salary calculation and payment, over 200 different bases for increasing salaries in the public sector, etc. In order to make the system coherent and find a uniform solution without upsetting the uniformity of certain departments, it was necessary to perform extensive and comprehensive interdepartmental consultations. Thus, over 40 meetings and a few workshops and additional 12 meetings of the Separate Group for Drafting the Law were held in the first half of 2015 alone. Its result was a Draft Law on the Payroll System in the Public Sector, which underwent three text changes through consultations which involved representatives of all line ministries in charge of certain public services (health, education, social welfare, culture, sports, tourism) and other state authorities, representatives of the Republic of Serbia Parliament, the Autonomous Province of Vojvodina, LSGUs, the City of Belgrade, judiciary

27 | A P P A R

authorities, the Ministry of Defence, the Ministry of Interior, the Human Resource Management Service, the National Legislature Secretariat. A public discussion was held afterwards, in October 2015, and the Draft underwent three more text changes. A similar example is the work on amending the Law on Civil Servants. Shortcomings of the system of recruiting (employing), assessing and evaluating, promoting and performing responsibilities of persons who are employed require extensive comparative and legal analyses as well as analyses of the existing regulatory framework and certain institutes that are applied in the public service system. Additionally, more extensive horizontal consultations with all state authorities, whose employees the Law on Civil Servants is applied to, are a necessary part of the process of preparing the amendments to the regulatory framework and its efficient application afterwards. It should be added that many activities, such as those in the AP PAR related to the regulation of professional development, also require prior amendment to the Law on Civil Servants – a unique approach to amendments and enforcement of the adopted legal decisions, along with the decisions pertaining to recruitment (employment), assessment, evaluation and promotion of the persons who are employed. Apart from the consultation, some activities were re-prioritised and merged during the implementation process due to a lack of capacities. A better process of planning public policies and defining priorities on the basis of the previous analyses can also be a measure to overcome a specific challenge. Nevertheless, new activities are always likely to occur in the meantime, though they are not anticipated and they become priorities, but require reallocation of the existing capacities at the given time. The example from the previous period is the priority of enacting the Law on Determining the Maximum Number of Employees in the Public Sector, which resulted from the fiscal consolidation process. Although such an activity was not foreseen in the AP PAR, in practice this process required involvement and reallocation of the existing capacities for drawing up the Law and the Programme of Public Administration Optimisation in order to achieve the target savings. An example of good practice of authorities co-ordination using administration own capacities and setting smaller goals is the project "Welcome to This World, Baby!“ within the Fourth objective of the AP PAR (Measure 4.4: Introduction and promotion of mechanisms that ensure the quality of public services), by means of creating a one stop shop for registering and submitting three documents for registering a new-born baby. The project required to be co-ordinated by a large number of institutions (MPALSG, MoI, Health Insurance Fund, Ministry for Labour, Employment, Veteran and Social Affairs). The 2015 result of this process is the completion of the first phase which should enable parents in the Q1 of 2016 to optionally register their new-born baby in one place, i.e. at the maternity ward, by filling in only one form and afterwards receive the complete documentation at their home address: a health card, a birth certificate and a notification of permanent residence. The service will be provided in all 76 public maternity units in Serbia and it will be open and available to private maternity units to participate in the project. The plan is to expand those services in the second phase to the documentation required for child allowance, which would make savings for the citizens in terms of collecting 20-50 documents (depending on whether they need social allowance) that they used to gather by themselves and take to the competent state institutions.

28 | A P P A R

IV PAR COORDINATION AND MANAGEMENT SYSTEM

As regards the structures for co-ordinating, monitoring, reporting and evaluating the implementation process of the public administration reform foreseen in the Public Administration Reform Strategy, all four co-ordination levels were established and fully functioning in the previous period, two of which are political: the Public Administration Reform Council and the Collegium of State Secretaries, and the other two are professional: the Inter-ministerial Project Group and the Unit for the Implementation of the Public Administration Reform at the Ministry of Public Administration and Local Self-Government.

The Council was established by the Decision on Establishing a Public Administration Reform Council

("Official Gazette of the RS", No. 79/2014, 86/2014, 120/2014 and 22/2015) on 15 August, 2014 and it

has held five sessions so far, on which achieved results and the future reform trends were discussed

(21/08/2014, 30/10/2014, 12/02/2015, 14/05/2015, 17/12/2015). The Council is Government’s working

group consisting of 17 members of the Government. At its first session, the Council adopted the Rules

of Procedure and a Decision on Establishing the Collegium of State Secretaries, as a working group of

the PAR Council; a Decision on appointing the Secretary of the PAR Council, who is at the same time

an Assistant minister for state administration and legal affairs and payroll at the MPALSG, as well as a

Decision on Setting Up a Working Group for the Coordination and Monitoring of the Implementation of

Long-term Fiscal Consolidation Measures and an Opinion on the Baselines for the First Stage of the PA

Optimisation – Rightsizing in 2015 were all adopted at the second session; at the third session,

Information on the Optimisation Support Project, funded by the EU and implemented by the WB in

cooperation with the MPALSG, was adopted and a Proposal for the Necessity of Enacting a Law on

Rightsizing, which will regulate the reduction of the PA employees in the next three years, was

submitted to the Parliament; at the Council’s fourth session a Draft Law on Determining the Maximum

Number of Employees in the Public Sector was discussed for the purpose of resolving previous issues

before submitting the Draft for opinion from the competent state administration bodies. Finally, at the

fifth session, which was held on 17 December 2015, a six-monthly Report on Implementing the Activities

Envisaged in the AP PAR in the first half of 2015 was adopted, a World Bank loan –Programme for

Results – modernisation and optimisation of the public administration was discussed, and the

Information on Conducting Functional Analyses under the Optimisation Support Project was presented.

Apart from the Collegium of State Secretaries, another Working group for e-administration is envisaged

within the Council according to the Strategy for e-Administration and AP, adopted in December 2015, for

which the procedure of adopting the decision and decree on its setting up is in place.

The Collegium of State Secretaries was set up in accordance with a Decree on Establishing the

Collegium of State Secretaries as Council’s working group, No. 23 119-10554/2014 adopted on 28

August 2014 by the Public Administration Reform Council. The Collegium has held four sessions so far:

7 October 2014, 13 January 2015, 22 May 2015 and December 16 2015. The activities pertaining to the

implementation of the PAR Strategy and AP development, as well as the development of a regulatory

framework for regulating the payroll system in the public administration were discussed at the first

session; the main topics of the second session were public administration rightsizing and cataloguing of

the work posts in the public sector; the Information on the Optimisation Support Project funded by the

EU and implemented by the WB in co-operation with the MPALSG was presented at the third session.

http://www.slglasnik.info/sr/79-29-07-2014/24462-odluka-o-obrazovanju-saveta-za-reformu-javne-uprave.html

http://www.slglasnik.info/sr/86-15-08-2014/24772-odluka-o-izmenama-odluke-o-obrazovanju-saveta-za-reformu-javne-uprave.html

http://www.slglasnik.info/sr/120-04-11-2014/26005-odluka-o-dopuni-odluke-o-obrazovanju-saveta-za-reformu-javne-uprave.html

http://www.slglasnik.info/sr/22-27-02-2015/27837-odluka-o-izmeni-odluke-o-obrazovanju-saveta-za-reformu-javne-uprave.html

29 | A P P A R

At the fourth session, held on 16 December 2015, a six-monthly Report on Implementing the Activities

Envisaged in the AP PAR during the first half of 2015 was adopted and the Information on the WB loan

–Programme for Results - modernisation and optimisation of the public administration as well as the

Information on Implementing Functional Analyses under the Optimisation Support Project were

presented.

The Inter-ministerial Project Group was set up according to a Decision No. 119-01-00242/2014-04,

adopted on 23 February 2015 by the Minister for State Administration and Local Self –Government.9 Its

members are the generals secretaries from all ministries and representatives of a similar rank of the

specific organisations and services of the Government, but also the representatives of the Civil Society

Organisations, the Sector Civil Society Organisations (SCSO) in charge of the public administration

reform. Furthermore, the Standing Conference of Towns and Municipalities (SCTM) is equally included

in the IPG as a connection with the local government. The IPG consists of 34 members and 33 deputy

members, out of whom 12 are the representatives of the non-governmental sector. IPG’s Secretary is

the Head of the Unit for the Public Administration Reform and Professional Training in order to ensure

the connection between the two levels of professional coordination and reporting. The IPG held three

meetings in 2015. The first one was held on 29 June 2015, where the Information on the Implementation

of the AP PAR (regarding the rightsizing and salaries) as well as the reporting and monitoring procedure

related to AP PAR were discussed. At the second meeting, which was held on 7 October 2015, the

IPG’s Rules of Procedure and AP PAR Semi-Annual Report on Implementation of Activities in the first

half of 2015 were adopted, and explanations of the solutions foreseen under the newly adopted Law on

Determining the Maximum Number of Employees in the Public Sector were discussed. The Information

on the WB loan – Programme for Results - modernisation and optimisation of the public administration

as well as the Information on Implementing Functional Analyses under the Optimisation Support Project

were presented in the third meeting.

The Unit for the Public Administration Reform and Professional Training, as a level of professional coordination for performing operational activities and coordination at the operational level of the public administration, was set up within the Ministry of Public Administration and Local Self-Government, whose capacities are to be strengthened in the upcoming period. Apart from the coordination, review and adoption of the AP PAR and AP OGP (Open Government Partnership), the development of the Passports’ indicators for 86 indicators defined under the AP PAR, the Unit took part in drafting Sector budget support for the PAR and public finance field, and continuously has been providing expert support to the PAR Council, Collegium of State Secretaries and IPG. Unit is organising, coordinating and drafting reports for the AP PAR implementation (including the development of Reporting Instructions and Excel sheets for each specific objective, i.e. reporting tools) as well as reports for the AP OGP. Even though this four-level system was used for discussions and decisions on urgent priorities of the public administration reform, more training sessions, strengthening of capacities and raising awareness are needed in the upcoming period in order for the reports to be seen in the context of early warning system and not only in terms of completed activities, with the aim of undertaking actions in a timely manner in order to accomplish the target plans.

9 The Decision was amended by the Decision on Amending the Decision on Setting Up an Inter-Ministerial Project Group for Performing

Professional Duties of Coordinating and Monitoring the Implementation Process of the Strategy for the Republic of Serbia Public Administration Reform for the period between 2015 - 2017, No. 119-01-00242/2014-04 adopted on 7 August 2015, due to the personnel changes in state administration bodies and NGO organisations.

30 | A P P A R

ANNEX 1: IMPLEMENTING ACTIVITIES IN 2015

Number Activity: Responsible Institution:

Information on Activity:

1.

Carrying out public administration system analysis with recommendations for system improvement Results: 1.1.1. Organisational forms and their mutual relationships have been improved, the number of organisations and the number of employees in public administration has been rightsized

MPALSG Status: Implemented

Progress made: System analysis has been carried out, the key elements to reorganisation and improvement of the legal and institutional framework have been identified, the direction for further optimization has been provided, as are the system changes necessary for reorganisation (including the priorities for in-depth analyses). As an additional result, an in-depth analysis methodology has been developed for the Ministry of Economy and this analysis was conducted in May 2015.

Problems: -

Future steps: in accordance with the activities set out in AP PAR. The analyses carried out are to serve as the basis for the project implemented by the World Bank and funded by the EC.

2.

Analyses of strategic expediency of selected organisations in the public administration system and the preparation of recommendations for improvement Results: 1.1.1. Organisational forms and their mutual relationships have been improved, the number of organisations and the number of employees in public administration has been rightsized

MPALSG Status: Implemented

Progress made: Recommendations and alternative scenarios for the reorganisation of all

bodies and organisations have been provided.

Problems: -

Future steps: in accordance with the activities set out in AP PAR. The analyses carried out are to serve as the basis for the project implemented by the World Bank and funded by the EC.

31 | A P P A R

3.

Providing support to SABs to prepare and implement rightsizing plans contained in the IMF programme, with a view to minimising negative impact on PA capacity Results: 1.1.1. Organisational forms and their mutual relationships have been improved, the number of organisations and the number of employees in public administration has been rightsized

MPALSG Status: implemented

Progress made: Rightsizing Baselines have been developed and adopted by the PA Reform Council. Public Administration Optimization Programme has been developed. The Law on Determining the Maximum Number of Employees in Public Sector has been enacted and published in RS Official Gazette, number 68, dated 4 August 2015. Pursuant to the Law, on 2 December 2015, the Government passed the Decision on the Maximum Number of Employees in State Bodies, Public Services, Autonomous Province of Vojvodina and Local Government System for 2015. The MPALSG has prepared the Draft Regulation on Data Collection during Rightsizing Process, complete with forms and instructions for filling out the forms, regulating more closely the data submission method and data types necessary to pass the Government Act on the Maximum Number of Permanent Employees in State Bodies, Public Services, Autonomous Province of Vojvodina and Local Government System for the calendar year, and the deadlines to submit the data. Pending opinion. A draft decision that should be adopted by the Government has been developed, laying down that the ministries shall undertake to draft Guidelines for Reorganisation and Modernisation of organisational forms under their purview by 29 February 2016, and that by 31 March 2016, they shall develop draft programmes for reorganisation and modernisation of organisational forms within the scope of their activities. Regarding the external monitoring of process implementation, the selection has been made (by open competition, in accordance with the Law on Public Procurement) of an external evaluator (CIF - Centre for Investments and Finance) who is to give its report within six months on the implementation of the Law and Decision on the Maximum Number.

Problems: - Future steps: Adopting the Regulation on Data Collection during Rightsizing Process. Adopting the Government Decision binding ministries to develop guidelines and draft programmes for reorganisation and modernisation of organisational forms under their purview. Adopting a single Action Plan for reorganisation and modernisation of public administration. Providing assistance to all SABs by carrying out functional analysis. (WB/EC Project).

32 | A P P A R

4.

Preparing a plan for the improvement of the manner in which public administration system is generally organised, including the definitions of typology of public administration bodies and organisations, basic concepts (including the concept of public administration) and the criteria used to establish and select organisational forms. Results: 1.1.1. Organisational forms and their mutual relationships have been improved, the number of organisations and the number of employees in public administration has been rightsized

MPALSG Status: partially implemented

Progress made: - Rightsizing Phase 1 has been completed (Law on Method of Determining the Maximum Number of Employees in the Public Sector has been enacted) and in parallel with this, diagnostics have been run through the World Bank/European Commission horizontal functional analysis project of 96 organisational forms. Horizontal functional analysis of public services (education, health care, social protection) is underway. Draft ToR have been developed to implement recommendations. - Functional analysis of the Ministry of Economy has been performed and internal organisation has been altered: 3 agencies have been abolished (Investment and Export Promotion Agency - SIEPA, Privatization Agency, National Agency for Regional Development) and the number of employees has been reduced by 109 (which makes 9% below the maximum number determined according to the Law on Maximum Number) - Some court jurisdictions have been transferred to notaries and bailiffs (execution of final / executive court judgments (bailiffs) and notarisation has been transferred and delegated to the private sector). - The Republic Agency for Spatial Planning has been shut down, and its tasks have been taken over by the Ministry of Construction, Transport and Infrastructure.

Problems: there was a delay in the enactment of the Decision on the Maximum Number of Employees in State Bodies, Public Services, Autonomous Province of Vojvodina and Local Government System for 2015, and a delay in the signing of the Financial Agreement between the RS and EC for IPA 2014 (it was signed on 29 June 2015).

Future steps: Harmonising and adopting functional analyses reports; adopting priorities for implementation; forming a change management team; developing the Action Plan for Public Administration Reorganisation and Modernisation, analysing regulations, proposing institution typology, structuring the organization model (core – non-core functions); monitoring and reporting on the implementation of the Decision on Maximum Number; monitoring and reporting on the implementation of recommendations contained in functional analyses – the 4th quarter, 2016.

33 | A P P A R

5.

Public Administration Reform Council (PARC) passing the decision on optimization process management. Result 1.1.2 Conditions have been created for in-depth optimization of selected organisational public administration sub-systems (carrying out functional analyses - FA)


Progress made: The Council gave its Opinion on the baselines for the first phase of public administration optimization – public administration rightsizing in 2015, and made a proposition to the Government that a draft law should be adopted in the process of public administration optimization in the following three-year period, based on common principles, regulating the downsizing, and/or the reduction of labour cost in public administration, and determining measures to be put in place for an efficient control aimed at maintaining the optimum number of employees. At Council meeting held on 12 February 2015, the following was passed: the Bill on the need to adopt a draft law regulating the downsizing of public administration (baselines) and the Information on Support Project for Optimization, funded by EU and implemented by the WB, in cooperation with MPALSG.

Problems: -

Future steps: in accordance with the activities set out in AP PAR. The Council will regularly examine the reports on the FA carried out and the recommendations (WB/EC Project) On the basis of the guidelines and draft programmes developed by the ministries, the PAR Council should carry out consultations by April 2016 to integrate and harmonise the drafts developed by sectors into a common Action Plan for Reorganisation and Modernisation of Public Administration.

34 | A P P A R

6.

Determining the methodology to perform the FA of the public administration sub-systems and the selection of sub-systems to undergo the FA. Result 1.1.2 Conditions have been created for in-depth optimization of selected organisational public administration sub-systems (carrying out functional analyses - FA)


Progress made: Priorities for analysis and reorganisation have been identified. FA will be carried out as follows: 1. horizontal functional analysis “State Plus” (includes the analysis of functions, organisation and personnel in all ministries and state administration bodies, and in other authorities and organisations on the republic level that although formally not included in the SA system, carry out similar tasks (agencies, in the general sense) and mandatory social insurance organisations) and 2. vertical functional analyses (Ministry of Finance, Ministry of Agriculture and Environmental Protection) and 3. Public Services Provision (health care, education, social protection) and the analysis of mechanisms employed to coordinate between the republic authorities and local government. Problems: a delay in the signing of the Financial Agreement between the RS and EC for IPA 2014 (it was signed on 29 June 2015). Nonetheless, project operationalisation has started.

Future steps: Phase one “State Plus” has been completed (a report was presented on 6 October 2015 to the Minister for Public Administration and Local Self-Government) Draft ToR have been developed to implement recommendations and the preliminary report for Phase I is being prepared. The defining of phase II horizontal functional analysis is underway. On the basis of the analysis of 96 organisational forms and institutions, a base/application containing an overview of all institutions included in the horizontal functional analysis has been developed (a software solution offering support to reporting and structure of employees in State Plus) A component of in-depth functional, vertical analysis of the Ministry of Finance - consultants have been selected, methodology has been determined, and is now in the data collection phase. A component of in-depth functional, vertical analysis of the Ministry of Agriculture and Environmental Protection - a meeting was held between the Minister for Agriculture and Environmental Protection, operational team and World Bank, a presentation of the methodology used to carry out functional analysis was delivered at the Ministry and the starting date for the work on functional analysis was set for the beginning of March 2016; the WB Team held a series of meetings with all organisational forms of the Ministry with a view to collecting data. Public Services Provision component - consultants have been selected, methodology has been determined for the fields of health care, education, and social protection and data collection is underway. Preliminary analyses in the fields of education and health care have been obtained and works in the field of social protection have started.

35 | A P P A R

7.

Preparing (training) teams of employees to carry out FA. Result 1.1.2 Conditions have been created for in-depth optimization of selected organisational public administration sub-systems (carrying out functional analyses - FA)


Progress made: Operational teams have been formed at the ministries and are actively working together with EU-WB-MPALSG, in coordination with MPALSG. 3 workshops with World Bank consultants have been held: 2 workshops for the State Plus component were held in May and August 2015 for operational teams at the level of all ministries, and one workshop was held in May 2015 for operational teams for Public Services Provision component. Phase one “State Plus” has been completed (a report was presented on 6 October 2015 to the Minister for Public Administration and Local Self-Government) Draft ToR have been developed to implement recommendations and the preliminary report for Phase I is being prepared. The defining of phase II horizontal functional analysis is underway. On the basis of the analysis of 96 organisational forms and institutions, a base/application containing an overview of all institutions included in the horizontal functional analysis has been developed (a software solution offering support to reporting and structure of employees in state administration plus)

Problems: -

Future steps: Capacity strengthening of ministries to carry out organisational, functional and staff analyses, and manage changes.

8.

Implementing plans referred to in 1.1.2.5, including the preparation and enacting/amending of relevant regulations Deadline: 2015/2016/2017 1.1.3 In-depth optimization of selected PA organisational sub-systems has been implemented

MPALSG Status: this activity was scheduled to begin, not to be implemented, in the 4th quarter 2015 and then to continue throughout 2016/2017, but due to the delay in signing of the Financial Agreement, the development of implementation plans for the recommendations contained in the FA is scheduled for 2016-2018.

Progress made: The methodology used to carry out the FA of the public administration sub-systems and the selection of sub-systems to undergo the FA has been determined, priorities for analysis and reorganisation have been identified. FA will be carried out as follows: 1. horizontal functional analysis “State Plus” and 2. vertical functional analyses (Ministry of Finance, Ministry of Agriculture and Environmental Protection) and 3. Public Services Provision (health care, education, social protection) and the analysis of mechanisms employed to coordinate between the republic authorities and local government. Problems:

Future steps: implementation of selected activities provided for in the Action Plans

36 | A P P A R

9.

An overview of the best international practice in the fields of communication and change management in the PA optimization process Results: 1.1.4 Support for the public administration optimization process shown by the professional and general public

MPALSG Status: not implemented

Progress made: However, with a view to introducing the public with the optimization process, the MPALSG organised a large number of meetings:

- with the professional public: Fiscal Council, FREN, Bureau of Statistics, Faculty of Economics, FEFA, researchers, banking sector

- a meeting with Members of Parliament: Economics Caucus - a meeting with all Chief Editors of the media and the reporters - PAR Conference - Conference at the Faculty of Economics on the public administration analysis and optimization

- Targeted texts and TV reports on this subject - Regular communication with the international public

An analysis has been prepared: “Modern State - Rational State”, a position paper and brochure including the overview of job posts in the so-called general state for 2013 and 2014 and the aforementioned documents are available on the MPALSG website http://www.mduls.gov.rs/index.php

Problems: this activity was provided for in Component II of the WB/EC Project, and the reason for failing to implement the activity within the deadline was the delay in the signing of the Financial Agreement between the RS and EC for IPA 2014 (signed on 29 June 2015). The forming of the Team for Support to Transformation of RS Public Administration has been provided for, tasking the team with the implementation of the recommendations contained in the functional analyses and with the communication and awareness-raising segment - the forming of the team is underway. The team has not been formed yet because there was a delay in the signing of an agreement between the World Bank and the European Delegation to Serbia (World Bank awards a grant to MPALSG for the forming of the aforementioned team).

Future steps: The forming of a CMU Team with an Advisor for Strategic Communications, development of the overview/analysis. A series of meetings on the subject have been planned: “A State Fit for Its Citizens - What Kind of Country Do We Want in the Future”, in the period between 15/12/2015 and 30/04/2016, with the plan for the development of a detailed plan of communication, informing and promotion of results achieved in the field of optimization and modernisation of the SA.

http://www.mduls.gov.rs/index.php

37 | A P P A R

10.

Development of a strategic approach to communication and change management in the PA optimization process Results: 1.1.4 Support for the public administration optimization process shown by the professional and general public


Progress made:

Problems: this activity was provided for in Component II of the WB/EC Project, and the reason for failing to implement the activity within the deadline was the delay in the signing of the Financial Agreement between the RS and EC for IPA 2014 (signed on 29 June 2015). The forming of the Team for Support to Transformation of RS Public Administration has been provided for, tasking the team with the implementation of the recommendations contained in the functional analyses and with the communication and awareness-raising segment - the forming of the team is underway. The team has not been formed yet because there was a delay in the signing of an agreement between the World Bank and the European Delegation to Serbia (World Bank awards a grant to MPALSG for the forming of the aforementioned team).

Future steps: The forming of a CMU Team with an Advisor for Strategic Communications, development of the overview/analysis. A series of meetings on the subject have been planned: “A State Fit for Its Citizens - What Kind of Country Do We Want in the Future”, in the period between 15/12/2015 and 30/04/2016, with the plan for the development of a detailed plan of communication, informing and promotion of results achieved in the field of optimization and modernisation of the SA.

11.

The development of a feasibility study for the registry and its adoption by the PAR Council Results: 1.1.6 The electronic register of public administration institutions and organisations and public administration employees has been established

DEG-MPALSG Status: partially implemented

Progress made: The Study has been developed. Within the framework of the feasibility study an analysis of the existing HRM systems in the SA has been carried out on the basis of which quality technical files are to be developed for the project. It is necessary that the Study be adopted by the E-Government Implementation Task Force, formed as part of the Public Administration Reform Council.

Problems: The reason for the partial implementation of this activity is the fact that the Public Administration Reform Council did not adopt this report, given that the E-Government Implementation Task Force has not been formed.

Future steps: Following the forming of the E-Government Implementation Task Force , this report will be adopted.

38 | A P P A R

12.

Preparation of a situation analysis in the field of local government in the Republic of Serbia, that will include data on demographic trends, administration capacities, territorial organisation, funding system and the distribution of jurisdiction and tasks between various levels of governance. Results: 1.2.1. The decentralisation policy framework for the Republic of Serbia has been determined


Progress made: The analysis included: constitutional and legal framework, the characteristics of the existing territorial organization, jurisdiction of LGUs, the structure of local authorities and the state of their organization, administrative capacity of LGUs, local economic development and public service delivery, income and expenses of LGUs. The implementation of activities provided a complete insight into the state of all key aspects of the existing local government system in the RS, on the basis of which, important problems have been identified and described, the resolution of which would enable the LGUs to function with more success.

Problems: -

Future steps: Analysis results will serve: (1) as the analytical basis for the planning and implementation of measures aimed at the achieving of the RS PAR Strategy goals (2) as the source for the ideas to prepare the draft RS Decentralisation Strategy.

39 | A P P A R

13.

Development of the Study on decentralisation models with a view to a more functional distribution of jurisdiction between individual levels of governance in the Republic of Serbia. Results: 1.2.1. The decentralisation policy framework for the Republic of Serbia has been determined


Progress made: A study has been developed (within the framework of preparation process for the formulation of the RS Decentralisation Strategy) The Study presents 2 potential decentralisation models with a view to achieving a functional distribution of jurisdiction between the central and local levels of governance. Model I is limited to the possibilities for decentralisation within the existing system (and primarily, constitutional) solutions, and the other model is aimed at projecting the optimum concept that would be achievable with potential changes to those solutions, and that would provide a basis for long-term strategic orientation in this field. The Model I elements consist of ideas and suggestions consolidated into 11 issues: improving the existing territorial organization, extending the original competencies entrusted to LG, assigning wider jurisdiction to towns and the City of Belgrade, introducing additional facultative and conditional competencies to municipalities and towns, improving inter-municipal cooperation and partnership with private sector, improving the management of LG’s operation, improving the position of city municipalities and local communities, strengthening the role of administrative districts and deconcentration councils, wider decentralisation of functions and personnel, improving the financial decentralisation, improving the monitoring of local government. The basic Model II elements consist of (1) the setting up of a polytypic structure within the first level LG (2) the setting up of middle level LG (within the districts). These two LG levels would allow (3) the voluntary merger of two or more districts of an area into a regional government form.

Problems: -

Future steps: Selecting between the 2 models. In the following period, the following activities will be implemented on the basis of which the choice will be made between the 2 decentralisation models:

It is necessary to complete the list of tasks carried out by all levels of governance in various administrative districts, so as to consider the possibilities that refer to the distribution of jurisdiction between the existing or proposed levels of governance in both models (currently underway)

It is necessary to complete the development of a cost-benefit analysis of the proposed decentralisation models that would determine the relation between costs and benefits of each proposition contained in the models (currently underway)

A document containing the results of the cost-benefit analysis would then be submitted to the PAR Council for consideration, and they would make the decision about further steps to be taken to finalise the proposition, that is to say that the Council would make the final decision on the choice of model (scheduled for the 4th quarter 2016).

On the basis of the analysis, recommendations have been made, baselines developed, ideas

and information necessary to develop the Decentralisation Strategy have been given. In the 1st

quarter of 2016, a Task Force will be formed to develop the Strategy and they will use the

analysis as the development material for the Strategy. Moreover, the recommendations

contained in this analysis and the analysis itself will be used to implement activities within AP

PAR: Adopting the baselines for preparation of Decentralisation Strategy by the PAR Council.

40 | A P P A R

14.

The cost-benefit analysis of the two potential decentralisation models. Results: 1.2.1. The decentralisation policy framework for the Republic of Serbia has been determined


Progress made: This analysis is aimed at considering the advantages and disadvantages of

the proposed decentralisation models and to determine, on the basis of the efficiency criterion,

the desirability of the proposed models that may be considered by the PAR Council when making

their decision on the further steps to be taken regarding the decentralisation and deconcentration

of state administration’s work. The analysis reached the conclusion that both models identified in

the Decentralisation Models Study with a view to a functional distribution of jurisdiction between

individual levels of governance in the RS could contribute to the improvement of the

decentralisation process and the elimination of the identified disadvantages in the existing

distribution of jurisdiction, thus meeting a part of prerequisites for a more effective and efficient

functioning of the public administration system. Applying both models that have been identified is

more preferable than maintaining the status quo, and the other model makes a more preferable

option than the first model.

Problems: Future steps: On the basis of the analysis, recommendations have been made, baselines

developed, ideas and information necessary to develop the Decentralisation Strategy have been

given. In the 1st quarter of 2016, a Task Force will be formed to develop the Strategy and they

will use the cost-benefit analysis as the development material for the Strategy. Moreover, the

recommendations contained in this analysis and the analysis itself will be used to implement

activities within AP PAR: Adopting the baselines for preparation of Decentralisation Strategy by

the PAR Council. The qualitative and quantitative evaluation shows that the propositions

contained in the decentralisation models that have been identified are generally feasible and

sustainable, except that the precise evaluation of their effects, and/or costs and benefits could be

provided only after each proposition has been concretised. On the basis of the aforementioned

proposition, an in-depth analysis will be launched in 2016-2017 of five priority fields, e.g.:

economy, agriculture, health care, social protection, environmental protection, urbanism. The

aforementioned analysis of five priority fields will be implemented through the Ministry’s project

titled “Support to Implementation of PAR Strategy Action Plan - LG Reforms 2016-2019” funded

by a Swiss agency for international development and cooperation. The general recommendation

made within the framework of the cost-benefit analysis was that the further concretisation of the

models that have been identified, the manner of their introduction and responsibilities should be

carried out within the Republic of Serbia Decentralisation Strategy and the Action Plan thereto.

41 | A P P A R

15.

Adopting of the baselines for preparation of Decentralisation Strategy by the Public Administration Reform Council. Results: 1.2.1. The decentralisation policy framework for the Republic of Serbia has been determined


Progress made: Problems: Some analyses were late due to the scope and complexity of their subject matters, the deadline for the completion of the list of tasks was extended due to public procurement (the process was repeated) - the deadline to deliver the final version of the list of tasks was therefore moved to 31/12/2015.

Future steps: Drafting the preparation document for the Strategy on the basis of the analyses carried out and the study. The estimated new deadline is the second Quarter 2016.

16.

Completing the list of tasks on all levels of governance in the fields that were not included in the first phase. Results: 1.2.1. The decentralisation policy framework for the Republic of Serbia has been determined


Progress made: The list is supposed to make a contribution to the drafting process of the Decentralisation Strategy, especially in its part describing the current condition regarding the distribution of jurisdiction and tasks carried out at national, provincial and local levels, and following its adoption and during the implementation of the Decentralisation Strategy of the Republic of Serbia. The list will make a contribution to the implementation of PAR Strategy in its part concerning decentralisation as one of the basic principles of public administration reform. Problems:

Future steps: It has been concluded, on the basis of the list of tasks, that there is not enough clarity when it comes to the distribution of jurisdiction and tasks between the 3 levels of governance: central, provincial and local, both within their primary jurisdiction, and in particular regarding the jurisdiction assigned. The list of tasks will be used to implement project activities of the Ministry’s project titled “Support to Implementation of PAR Strategy Action Plan - LG Reforms 2016-2019” funded by a Swiss agency for international development and cooperation. The entire list of tasks will continue to be updated, within the aforementioned project, until the end of 2019. Within one project component, an information system will be developed for LGUs, containing, among other, tables i.e. lists of tasks pertaining to all fields at all levels of governance and it will be available in that form to all LGUs, citizens and businesses, thus allowing easy access to harmonised, quicker, cheaper and higher quality services. In the 1st quarter of 2016, a Task Force will be formed to prepare the Strategy and they will use the list of tasks as the development material for the Decentralisation Strategy.

42 | A P P A R

17.

Preparing, carrying out consultations on and determining the Draft Law on Local Government Funding. Results: 1.2.2 The framework for providing sustainability of public finance at local level has been improved

MF Status: partially implemented

Progress made: a public debate has been held on Draft Law on Local Government Funding

Problems:

Future steps: An extension of the deadline to enact this law has been agreed with the IMF, to 31 March 2016.

18.

An integrated analysis of employment and commitment of funds in public services provision at the local level, comparatively in LGUs Results: 1.2.2 The framework for providing sustainability of public finance at local level has been improved

MF Status: not implemented

Progress made: Problems:

Future steps:

43 | A P P A R

19.

Specifying the role that NPPS plays in public policy management and defining the Government priorities, including its role in the monitoring of the implementation (amendments to relevant regulations) Results: 1.3.1 A common system for managing public policies has been established allowing the preparation of public policy documents harmonised with the adopted standards

NPPS Status: partially implemented

Progress made: The NPPS was founded on April 2014, under the Law On Ministries (Official Gazette of RS, No 44/2014 and 14/2015.) The latest amendments to the Government Rules of Procedure dated July 2014 (Official Gazette of RS, No 61/06 - consolidated text 69/08, 88/09, 33/10, 69/10, 20/11, 37/11, 30/13 and 76/14) specify the role that NPPS plays in the legislative process, on the one hand, and in the public policy creation process and strategic planning on the other. Namely, Article 6 paragraph 46 of the Government Rules of Procedure sets out that opinion should be obtained from the NPPS on the draft law and draft Fiscal Strategy and Development Strategy, and on the analysis of the effect of the law, that is to be submitted together with the draft law, in accordance with the provisions of the Government Rules of Procedure (in the event that the proponent of regulation decides not to submit the analysis of the effects of the law accompanying the draft law, they shall acquire opinion from the NPPS on that matter.) Moreover, the Rules of Procedure allow the work to be carried out on the determining of rules for the prioritisation of Government’s work, by developing and monitoring the implementation of the Action Plan implementing the Government Programme - Article 79a of the Government Rules of Procedure provides for the Government to adopt the AP implementing the Government Programme, defining the priority goals, deadlines for achieving such goals and the expected results. The NPPS prepared a draft AP implementing the Government Programme, that was adopted by the Government in February 2015, and is currently being implemented. On the basis of the annual reports made by the state administration bodies, the NPPS is monitoring the implementation of the AP. The NPPS initiated the forming of a Project Group consisting of the Ministry of Finance, General Secretariat of the Government, Republic Legislative Secretariat, European Integration Office and the NPPS, with a view to developing acts that are to regulate the system of public policy

management and setting up an integrated planning and budgeting system and thus specifying the roles played by key institutions of the “Government centre” in the planned system.

Problems: Considering that the amendments to the Government Rules of Procedure formulated by the NPPS and transmitted to the Republic Legislative Secretariat have not been adopted, the NPPS prepared a draft package of regulations aimed not only at setting up a common planning and public policy management system for the RS, but also at defining the precise role that the NPPS plays in public policy management, especially where monitoring of public policy implementation and reporting on the results achieved is concerned. Moreover, with a view to regulating the strategic framework for the public policy management system and a better integration of the public policy system management and the legislative activities of the state administration bodies and the RS government, and within that framework a better and more precise defining of its role in this system, the NPPS has prepared the Strategy of Regulatory Reform and Improvement of Public Policy Management System for the 2016-2020 period and the accompanying Action Plan that was adopted at the Government session held on 23 January 2016.

Future steps: Finalizing the consultations and adopting the package of acts and their

implementation (immediately upon the founding and the beginning of functioning of the new

Government) and the implementation of the Strategy and Action Plan.

44 | A P P A R

20.

Determining the legal basis for adopting the methodologies used in public policy management and the guidebook (amendments to the relevant regulations) Results: 1.3.1 A common system for managing public policies has been established allowing the preparation of public policy documents harmonised with the adopted standards


Progress made: In the draft Law on Planning System in Serbia, the NPPS made provisions for the legal basis to pass two methodologies in the form of directives: The directives on public policy management, analysis of the effect of public policies and regulations and the content of individual public policy documents and the Directive on Medium Term Planning. The proposed amendments to the Government Rules of Procedure prepared by the NPPS also contain provisions referring to the obligation NPPS has to develop and adopt these methodologies. Problems: The proposed amendments to the Government Rules of Procedure prepared by the NPPS have not been adopted yet, neither has the Law on Planning System in the RS been adopted. However crucial steps on that road have been taken. This is, above all, the process of consultations, still being held at this moment, and following the completion of the process, the law adoption phase will follow, after which directives will be adopted because they will be used to effectively implement the law.

Future steps: Adopting the Law on Planning System - according to the Government’s Annual Work Plan for 2016, the Law on Planning System in the RS is supposed to be adopted by the end of the first Quarter 2016, however, having in mind the upcoming election, the Law is planned to be sent to the Government for consideration and determining of draft law immediately upon the forming and beginning of functioning of the new Government.

45 | A P P A R

21.

Preparing and adopting the methodologies used in public policy management and preparing the guidebook Results: 1.3.1 A common system for managing public policies has been established allowing the preparation of public policy documents harmonised with the adopted standards


Progress made: The NPPS has developed the draft versions of methodologies in the form of two directives: The directives on public policy management, analysis of the effect of public policies and regulations and the content of individual public policy documents and the Directive on Medium Term Planning. In the course of the entire 2015, the NPPS held continuous and wide consultations with various stakeholders (above all with the members of the aforementioned Project Group, and with other stakeholders as well) in relation to the draft versions of these directives. The following entities took part in the consultations: institutions of the RS Government (Ministry of Finance, General Secretariat of Government, Republic Legislative Secretariat, European Integration Office, the Ministry of State Administration and Local Government, the Ministry of Internal Affairs and others), followed by civil sector representatives (numerous civic associations and other civil society organisations), academic and research-development communities (numerous institutes and research centres), international organisations, numerous domestic and international experts, international donors, the business community and others. The central event during these consultations was the round table held at the end of August 2015, aimed at representing the solutions proposed in these directives and collecting suggestion and comments from the stakeholders. All remarks and suggestions delivered to the NPPS during the consultation process have been adopted, and draft versions of the directives have been adapted in accordance therewith. By the end of 2015, the text of draft directives was formulated, ready to be transmitted to state administration bodies to give their opinion.

Problems: Consultations on the draft versions of directives are still underway due to great interest of the institutions that were consulted on the matter and the scope and content of their comments and suggestions, making the entire process of consultations last longer than it was originally anticipated by the NPPS. When the consultations are finalized, the directives will be adopted, after the Law on Planning System in the RS has been adopted.

Future steps: Finalizing consultations and adopting directives. According to the Government’s Annual Work Plan for 2016, the aforementioned package of acts is supposed to be adopted by the end of the first Quarter 2016, however, having in mind the upcoming election, the package of acts is planned to be sent to the Government for consideration and adoption immediately upon the forming and beginning of functioning of the new Government.

46 | A P P A R

22.

Linking public policy management with the development and execution of programme budget (amendments to relevant regulations) Results: 1.3.1 A common system for managing public policies has been established allowing the preparation of public policy documents harmonised with the adopted standards


Progress made: One of the goals for which the proposed package of acts was created is to

link the budget planning, creation and execution processes. The draft version of the Law on

Planning System in the RS regulates the linking of the public policy management and the budget

development and execution, while the Directive on Medium Term Planning in the state

administration bodies further elaborates the process of linking planning with budget development

and execution. This directive allows the simple and practical development of medium term plans

by the state administration bodies that are to be used by the state administration bodies precisely

for the purpose of linking public policies under their competence with the operative activities and

planning and execution of their budgets. Additionally, the NPPS initiated the forming of a Project

Group consisting of the Ministry of Finance, General Secretariat of the Government, Republic

Legislative Secretariat, European Integration Office and the NPPS, with a view to developing acts

that are to regulate the system of public policy management and set up an integrated planning

and budgeting system, thus specifying the roles played by key institutions of the “Government

centre” in the planning system.

Problems: Consultations on the draft version of the Law on Planning System in the RS and the Directive on Medium Term Planning are underway, taking longer than it was originally anticipated by the NPPS due to great interest of the institutions that were consulted on the matter and the scope and content of their comments and suggestions, after which the these acts will be adopted.

Future steps: Finalizing consultations and adopting the Law and the Directive. According to the Government’s Annual Work Plan for 2016, the aforementioned Law and Directive are supposed to be adopted by the end of the first Quarter 2016, however, having in mind the upcoming election, these two acts are scheduled to be sent to the Government for consideration, determining of the Draft Law and adoption of the Directive immediately upon the forming and beginning of functioning of the new Government.

47 | A P P A R

23.

Capacity strengthening of the Republic Secretariat for Public Policies through regulatory, organisational, educational and informational activities. Deadline: Quarter 4 2017 (cont.) For Result: 1.3.1. A uniform system was established for the management of public policies, which provides preparation of documents of public policies complied with the adopted standards

NPPS Status: Implemented planned activities for the previous period

Progress made: The prepared package of acts in the field of planning also ensures the NPPS capacity building since NPPS will get a greater role and responsibilities in the process of planning, designing and coordinating public policies, compliance control and quality of policy documents, the analysis of effects of policy documents and regulations, etc. By adopting the package of acts, new competences of NPPS will be formalized and thus its total capacities of institutions (regulatory, organizational) be raised, and the potential for educational and information activities greater. During 2015, the NPPS employees (managers and executives) went through a series of trainings on the topic of various areas of planning and creating public policies (planning techniques, the effects of public policy analysis and monitoring, reporting and evaluation of the implementation of public policies) in order to strengthen diverse skills through which they improve the efficiency and productivity of the NPPS employees (communication skills, presentation skills, holding meetings, etc.), with comprehensive training on tax policy and applied econometrics held. Two team building seminars for the NPPS employees were organized whose topic was also strengthening specific skills of employees as well as team organization and cooperation, and the organization of work of NPPS according to the structure of the institution established by the systematization of jobs. The activity is carried out as planned. The consultations on the drafts of acts are in progress, to be followed by their adoption. In addition, with the support of international donors NPPS has programmed for 2016, new trainings for the NPPS employees will be held (primarily in the area of policy-making based on evidence and relevant data, management processes, but also in other areas relevant in terms of NPPS having full capacities for implementing the envisaged reforms).

Problems:

Future steps: Completion of the consultation procedure and adoption of acts as well as the implementation of training in NPPS.

48 | A P P A R

24.

Preparation of training programs and implementation of training of civil servants on the topic of Improving the public policy management system, the process of preparation and implementation of the budget, and connecting with the medium-term fiscal framework. Deadline: Quarter 4 2017 (cont.) For Result: 1.3.1. A uniform system was established for the management of public policies, which provides preparation of documents of public policies complied with the adopted standards


Progress made: In the first half of 2015, NPPS created a detailed training program for civil servants coming from different state authorities and implemented these trainings on the topic of improvement of public policy management system. The training program included three modules (planning techniques, analyses of the effects of public policies and monitoring, reporting and evaluation). The three-round programme organised and conducted by NPPS was attended by a total number of about 50 civil servants (managers and executives). Besides this, NPPS also participated in designing the professional training programs for general managers and civil servants for the year 2015, on the topic of public policy management system (which included designing of training on the process of preparation and implementation of the budget and connection with the medium-term fiscal framework) in cooperation with the Human Resource Management Service. Also, the NPPS employees held a training on regulatory impact assessment, the role of managers in strategic and financial planning in the state administration, the topic of creation, analysis of the effects and implementation of public policies, as well as the management of the legislative process. These training sessions were attended approximately by 95 participants (managers in various public authorities and civil servants). The activity is carried out as planned. Once the package of acts is adopted, the training programme will be additionally enhanced to fully reflect solutions envisaged by the adopted acts, and properly prepare civil servants to apply and implement the adopted solutions and provisions in practice.

Problems:

Future steps: NPPS organizes a follow-up of training programme implementation for civil

servants from different SABs in cooperation with HRMS. Finalizing consultations and adoption of

documents.

49 | A P P A R

25.

Building analytical capacities within NPPS and SABs for planning, preparation, implementation and monitoring of the implementation of public policies based on evidence and relevant data. Deadline: Quarter 4 2017 (cont.) For Result: 1.3.1. A uniform system was established for the management of public policies, which provides preparation of documents of public policies complied with the adopted standards

NPPS Status: implemented

Progress made: During 2015, a series of training on tax policy and a series of training in the field of econometrics was held for the NPPS employees, which improved analytical knowledge and skills of employees engaged in analytical work. Also, all the training sessions specified at activities 5 that are related to the increase of analytical and other capacities of the NPPS employees, significantly contribute to the implementation of the reform of the public policy management system. Finally, all the training that the NPPS organized and/or held for representatives of state authorities (listed at activities 6) aimed at the improvement of the analytical capacities of the state authorities, as well as the skills for planning civil servants. NPPS continuously works on promoting the importance of establishing analytical capacities within SABs. NPPS has allocated substantial funds (from the sector budgetary support for public administration reform envisaged by the EU IPA 2015) in the budget for 2016 for the implementation of these activities.

Problems: No legislation governing the analytical study-planning activities in SABs has been passed and which, inter alia, should also envisage the establishment of services for analytical activities (primarily amendments of the Regulation on Principles for internal organization and systematization of jobs in ministries, special organizations and Government services and regulations governing the operations of the state administration, for which MPALSG is responsible), nor any law on statistics which provides for further development of methodological and analytical sector and improvement of professional knowledge and skills. Significant financial support from foreign donors, which NPPS has programmed for 2016, should enable the implementation of training and other activities that will raise the analytical capacities of the SABs, and the funds for the purposes allocated in the budget of RS for the year 2016 from the sector budgetary support (from IPA 2015).

Future steps: Adoption of the above regulations, planning and organization of training, mentoring

and coaching activities.

50 | A P P A R

26.

Preparation and adoption of the Action Plan for the implementation of the Government's Program (2015 Pilot Program), which determines the priority goals of the Government Results: 1.3.2. Mid-term and annual planning in the state authorities is based on the Government's priorities and program budget, and its implementation is regularly monitored


Progress made: An analysis of strategic planning and public policy coordination in the RS has been performed and the key issues identified, on the basis of which a need for creating a framework for prioritizing public policies has arisen. The proposal of the Action Plan for the implementation of the Programme of the Government has been made, based on a detailed analysis of the Programme of the Government and several months of cooperation with government authorities, and the Government adopted the above in February 2015. The Action Plan for the implementation of the Government’s Programme is based on the priority activities of the Government in the mandate period, including 98 medium-term strategic objectives identified and appropriate measures for their implementation, as well as the activities of the identified holders for implementing measures and the expected results and deadlines for their implementation. NPPS, based on the annual reports by the state authorities, monitors the implementation of the Action Plan for the implementation of the Government’s Program and reports to the Government on the level of implementation of the priority goals by the set deadline. Report on the implementation of the Action Plan for the Implementation of the Government’s Programme which NPPS is currently drafting, should be adopted by the

Government until the end of the first quarter of 2016..

Problems: -

Future steps: NPPS, based on the annual reports by the state authorities, monitors the implementation of the Action Plan for the implementation of the Government’s Program and reports to the Government on the level of implementation of the priority goals by the set deadline.

27.

Analysis of the existing IT capacities and production of technical specifications of integrated IT solutions that will integrate the planning and budget process and enable reporting on the basis of plans and budget execution Results: 1.3.2. Mid-term and annual planning in the state authorities is based on the Government's priorities and program budget, and its implementation is regularly monitored


Progress made: The analysis of existing IT capacities for the planning and preparation and execution of the budget has been performed, and the proper recommendations formed on the creation of an integrated IT system for planning and preparation and execution of the budget which would provide effective support to the systems of planning and budgeting in the RS.

Problems:

Future steps: All activities on providing sector budget support to the European Commission for providing IT capacities in the field of public administration reform (580 000 euros)

51 | A P P A R

28.

Improvement of the existing capacities of the SABs for planning activities through establishing a model for the organization of study-analytical tasks (amendments of the Regulation on Principles for internal organization and systematization of jobs in ministries, special organizations and Government services and regulations governing the operations of the state administration), Results: 1.3.2. Mid-term and annual planning in the state authorities is based on the Government's priorities and program budget, and its implementation is regularly monitored

NPPS Status: not implemented

Progress made: NPPS, in cooperation with MPALSG, carries out activities related to the analysis of existing capacities of SABs for study-analytical and planning tasks and possible modalities in order to strengthen the capacities of SABs for planning public policies and analysis of their effects. However, for the implementation of these activities, it is crucial to amend the Regulation on Principles for internal organization and systematization of posts in ministries, special organizations and Government services and regulations governing the operations of state administration. Moreover, for better performance of the analytical and planning activities in the state administration, it is necessary to adopt the Law on Statistics which provides for the further development of methodological and analytical sector and raising the level of professional knowledge and skills. During the whole year of 2015, NPPS practically worked on building the analytical and planning capacities in the state authorities by conducting various trainings for representatives of state authorities (listed at activities 6) aimed at the improvement of analytical capacities of state authorities, as well as the skills for planning civil servants. NPPS continuously works on promoting the importance of establishing analytical capacities within the SABs, and has allocated significant funds (from sector budgetary support for public administration reform envisaged by the EU IPA 2015) in the budget for 2016 for the implementation of this activities and programmed significant funds of other foreign donors for this purpose.

Problems: The delay in amending the Regulation on Principles for internal organization and systematization of posts in ministries, special organizations and Government services and regulations governing the operations of state administration.

Future steps: Formulation and adoption of amendments to the Regulation on Principles for internal organization and systematization of posts in ministries, special organizations and government services and regulations governing the operations of state administration, and the organization and implementation of practical training for raising the analytical and planning skills and knowledge of civil servants (Quarter 2 2016).

52 | A P P A R

29.

Revision and adoption of the Action Plan for the implementation of the Government's Program for the period 2016-2018 Results: 1.3.2. Mid-term and annual planning in the state authorities is based on the Government's priorities and program budget, and its implementation is regularly monitored


Progress made: NPPS, based on the annual reports by the state authorities, monitors the implementation of the Action Plan for the implementation of the Government’s Program and reports to the Government on the level of implementation of the priority goals by the set deadline. Processing of received reports on the implementation of the Action Plan of the state administration for 2015 is in progress, under which NPPS shall make a Report on the level of implementation of the priority objectives of the Action Plan for the implementation of the Government’s Program (which, according to the Annual Work Plan of the Government for 2016, should be adopted by the end of February 2016). After the formation of the new government, NPPS will prepare a new Action plan for the implementation of the Government’s Programme.

Problems: NPPS is currently monitoring the implementation of the Action Plan for the implementation of the Government program, processing the received reports of state authorities on the implementation of the Action Plan in 2015 and is working on the preparation of the Report on the level of implementation of the priority objectives of the Action Plan for the implementation of the Government’s Program. After the formation of the new government, NPPS will prepare a new Action plan for the implementation of the Government’s Programme.

Future steps: Completion of work on the Report on the level of implementation of the priority objectives of the Action Plan for the implementation of the program of the Government. Immediately after the formation and commencement of work of the new government, NPPS will prepare a new action plan for the implementation of the new Government’s Programme.

53 | A P P A R

30.

Improving the process of drafting and contents of the government annual work plan and annual report on the Government’s activities through the improvement of the existing IT system for the planning process in the GSV, modification of instructions for compiling the annual work plan and annual report on the Government’s activities and the amendment of relevant legislation by including NPPS in the planning process. Results: 1.3.2. Mid-term and annual planning in the state authorities is based on the Government's priorities and program budget, and its implementation is regularly monitored


Progress made: Based on previously conducted study of the existing IT capacities for the processes of planning and preparation and execution of the budget, these recommendations for the creation of an integrated IT system for planning and budget execution, NPPS and the Ministry of Finance have initiated the formation of a project group at the level of the institutions of the Government’s centre which will participate in the design of integrated IT solutions, which will include the improvement of the existing ISfGPPR at the Secretariat General of the Government. NPPS was involved in drafting the instructions of the General Secretariat of the Government to compile the Annual Work Plan of the Government for the year 2016 through ISfGPPR, and therefore in this planning process as well. Based on the recommendations of NPPS, this instruction stated that all programs, program activities and projects envisaged by the work plans of the state authorities for the year 2016 shall comply with the structure of the program budget of the state authorities for the year 2016, so as not to cease the practice of different and parallel planning activities of state authorities, on one hand, and the budget and its execution, on the other. All state authorities had to adhere to the given instructions, thereby achieving higher efficiency of the planning process. Also, at the initiative of NPPS, all items in the proposals of work plans of the state authorities had to be associated with the priority of structural reforms envisaged by the Program of Economic Reforms (abbreviated: PER), to allow for prioritization in the work of the state administration for the year 2016.

Problems:

Future steps: This activity will be fully implemented in the framework of activities related to the

improvement of the existing IT structures in the government and creating an integrated IT solution that will integrate the planning and budgeting process and facilitate reporting on the basis of plans and execution of the budget which will include: Action Plan for implementation of the Government programme, PRVG, the existing system for program budgeting and budget execution, as well as the ISDACON and NPAA systems. Continuation of the work of the project group at the level of institutions of the government centre that participate in the design of the integrated IT solution that will fully connect the planning and budgeting process (Quarter 4 2016)

54 | A P P A R

31.

Developing medium-term work plans for SABs complied with the strategic priorities of the Government and the program budget Results: 1.3.2. Mid-term and annual planning in the state authorities is based on the Government's priorities and program budget, and its implementation is regularly monitored


Progress made: The activity is carried out as planned. Consultations on the draft version of the Law on Planning System in the RS and the Directive on Medium Term Planning are in progress, to be followed by the adoption phase and the implementation of these acts. A draft of the Law on Planning System in the RS and the Directive on medium term planning regulate in detail the obligation and process of developing medium-term plans of state authorities in line with the strategic priorities of the Government and the program budget.

Problems:

Future steps: Finalizing the consultations and adoption of the Law on Planning System in the RS

and Directive on medium term planning. The above Law and Directive should be adopted by the end of the first Quarter 2016, however, having in mind the upcoming elections, these two acts are planned to be sent to the Government for consideration, determining of the Draft Law and adoption of the Directive immediately upon the forming and beginning of functioning of the new Government.

32.

Determining the obligation of publishing the annual work plan and annual report on the Government’s activities on the Government’s portal e-government and/or the website of the Government (amendment of relevant regulations) Results: 1.3.3. Increased transparency of public policy management


Progress made: the General Secretariat of the Government implemented Activity no. 1 - Determining the obligation of publishing the Annual Work Plan of the Government, by publishing the Annual Work Plan of the Government for 2015 on the website of the General Secretariat of the Government. With regard to the obligation of publishing the Annual report on the work of the Government for 2015, we point out that the process of its development is in progress in accordance with Article 79. of the Rules of Procedure of the Government, according to which “the Government shall adopt the annual report on work activities until 1 May of the current year for the previous year”.

Problems:

Future steps: The General Secretariat fulfils this obligation in practice and publishes the Report on the Internet, but the amendment of the regulation and determination of the obligation of publishing shall be fulfilled upon the adoption of the planning system.

55 | A P P A R

33.

Establishing the obligation for the state authorities to periodically report to the Government on the implementation of regulations and policy documents and achieved effects (changes in the relevant regulations) Results: 1.3.3. Increased transparency of public policy management


Progress made: Consultations on the draft version of the Law on Planning System in the RS and the Directive on Medium Term Planning are in progress, to be followed by the adoption phase and the implementation of these acts. A draft of the Law on Planning System in the RS and the Directive on medium term planning regulate in detail the obligation and process of developing medium-term plans of state authorities in line with the strategic priorities of the Government and the program budget.

Problems:

Further steps: Finalizing the consultations and adoption of the Law on Planning System in the RS and Directive on medium term planning. The above Law and Directive should be adopted by the end of the first Quarter 2016, however, having in mind the upcoming elections, these two acts are planned to be sent to the Government for consideration, determining of the Draft Law and adoption of the Directive immediately upon the forming and beginning of functioning of the new Government.

34.

Improving the process of consultations with stakeholders in the public policy management system (amendment of relevant regulations) Results: 1.3.3. Increased transparency of public policy management


Progress made: Consultations on the draft version of the Law on Planning System in the RS and the Directive on Medium Term Planning are in progress, to be followed by the adoption phase and the implementation of these acts. A draft of the Law on Planning System in the RS and the Directive on medium term planning regulate in detail the obligation and process of developing medium-term plans of state authorities in line with the strategic priorities of the Government and the program budget.

Problems:

Future steps: Finalizing the consultations and adoption of the Law on Planning System in the RS and Directive on medium term planning. The above Law and Directive should be adopted by the end of the first Quarter 2016, however, having in mind the upcoming elections, these two acts are planned to be sent to the Government for consideration, determining of the Draft Law and adoption of the Directive immediately upon the forming and beginning of functioning of the new Government.

56 | A P P A R

35.

Preparation and adoption of the Strategy of development of electronic government in the Republic of Serbia and the Action Plan for the implementation of the Strategy of development of electronic government in the Republic of Serbia for the period 2015-2018. Results: 1.4.1. Provided coordinated management of the electronic government development with the establishment of the institutional and legal framework completion

DEG-MPALSG Status: implemented

Progress made: Strategic framework for the implementation of activities in the field of e-Government in the Republic of Serbia has been completed. In December 2015, the Strategy with Action Plan (“Official Gazette of RS”, No. 107/15) http://www.digitalnaagenda.gov.rs/vesti/usvojena_strategija_razvoja_euprave_u_rs_do_2018-

_godine/ was adopted.

Problems: The adoption of the Strategy and the AP was delayed due to detailed inter-ministerial consultations.

Future steps: Adoption of the Law on e-government (formation of the working group for drafting the Law is in progress), the Law on Civil Registry (under the jurisdiction of the Ministry of Interior), as well as the adoption of other sector laws in the jurisdiction of the competent ministries that have parts related to e-government...

36.

Forming the Work Group for the implementation of e-government within the Council for Public Administration Reform Results: 1.4.1. Provided coordinated management of the electronic government development with the establishment of the institutional and legal framework completion

DEG-MPALSG Status: not implemented

Progress made: The procedure for the adoption of the Decision and special Decision on the establishment of the Work Group for monitoring the implementation of the Strategy for the Development of E-Government of the RS until 2018. Coordinated work activities of all sectors of the Government in the field of E-Government

Problems: The Strategy envisaged the establishment of this working group, and its delay was caused by the delay in the adoption of the Strategy. Once the strategy was adopted, we started the procedure for forming the Work Group.

Future steps: Deadline for the adoption of the Decision and special Decision is Quarter 1 2016

37.

Initiating act. on the establishment of national geospatial data infrastructure - development of technical specifications for the national geoportal Results: 1.4.2. Interoperable functioning of communication among different information systems of SABs and LSGs based on the use of established basic registers of electronic government


Progress made: Technical specification has been completed.

Problems: -

Future steps: In the following period, the follow-up activities shall required: 1. Work on the legislative framework 2. Initiated analysis of IT infrastructure to support GeoPortal The deadline for these activities is Quarter 4 2016

http://www.digitalnaagenda.gov.rs/vesti/usvojena_strategija_razvoja_euprave_u_rs_do_2018-_godine/

http://www.digitalnaagenda.gov.rs/vesti/usvojena_strategija_razvoja_euprave_u_rs_do_2018-_godine/

57 | A P P A R

38.

Completing the legal framework of electronic government Results: 1.4.2. Interoperable functioning of communication among different information systems of SABs and LSGs based on the use of established basic registers of electronic government


Progress made: A Draft Law on General Administrative Procedure was defined and sent for the

assembly procedure; Article 217 Of the Draft Law provides that the law comes into force eight days

after its publication in the “Official Gazette of the Republic of Serbia”, and be applied from 1 June

2017, except for the provisions of Articles 9, 103 and 207 of this Law which shall be applicable 90

days after the date of entry into force of this Law. The second piece of legislation was planned by

the MPALSG and DEG and which is under the jurisdiction of these institutions, is the Law on

Electronic Government, the drafting of which is currently in progress. It is a plan to finish, by the end

of the second quarter, the drafting of the Law which would then be established by the new

government after the parliamentary elections.

Problems: -

Future steps: These activities are planned to be completed by the end of Quarter 2 2016.

39.

Promotion of the business entity register and other status registers of the Business Registers Agency (quality, availability, delivery, scope and contents of data) Results: 1.4.2. Interoperable functioning of communication among different information systems of SABs and LSGs based on the use of established basic registers of electronic government


Progress made: Information of the Business Registers Agency has been promoted by the service of Issuing electronic building permits; however, it has not been entirely connected to the E-Government Portal, information systems of local governments and other bases within the SA and LSG systems. Adequate connection to the data bus of E-Government is planned for 2016.

Problems: Potentially indifferent BRA due to other priorities in their operations.

Future steps: Connecting the BRA information system to the E-Government Portal system, introducing the TSA services for the BRA, exchange of data between the information systems of BRA and LSGs through E-Government.

58 | A P P A R

40.

Establishing the electronic register of citizens, including the preparation and adoption of the proposal of the relevant law Results: 1.4.2. Interoperable functioning of communication among different information systems of SABs and LSGs based on the use of established basic registers of electronic government


Progress made: The terms of reference have been prepared, reflected in compiling the tender documentation.

Problems: The process of the project has been halted for a long time by the Unit for contracting and implementation of projects (Ministry of Finance) in communication with MPALSG. On the other hand, the EU Delegation has reduced the funds from EUR 4 million to EUR 2 million, which brought project goals back to the beginning of the project, but there is still the Unified Register of citizens within it. Also, in the first version of the AP PAR there is a typing mistake in the deadline that should be corrected, because it should read: the deadline for implementation - December 2017.

Future steps: First of all, it is necessary to develop a Draft Law on the Unified Register of Citizens, which will support the project and enable the implementation and sustainability of the project in the long run.

41.

Opening an Address Register for all applications Results: 1.4.2. Interoperable functioning of communication among different information systems of SABs and LSGs based on the use of established basic registers of electronic government


Progress made: In the context of work with the Unit for delivery of the Prime Minister Cabinet, it has been agreed that this work activity is set as a priority for the next action plan. There is a possibility that as a interim solution, a temporary address register is created under the E-Government Portal, but it is necessary that all parties in the project agree on the issue: RGA, Post Serbia, CROSO, Republic Institute for Statistics and DEG.

Problems: Too many different and already developed databases with addresses.

Future steps: The project is led by the Unit for delivery of the Prime Minister Cabinet

42.

Implementation of the 3 new electronic services Results 1.4.3. New electronic services that use basic registers are established and widely promoted

DEG-MPALSG Status: partially implemented

Progress made: Completed implementation of software solutions, which has not been accompanied by the organizational changes and necessary bylaws. There is a problem with all users: Tax Administration and Ministry of Interior.

Problems: Lack of strong mechanisms for cooperation among the various institutions and E-Government Portal, especially when on the side of users (e.g. Tax Administration) there is an uninterested user.

Future steps: Create a mechanism that will provide sustainability of projects and services after the technological implementation.

59 | A P P A R

43.

Analysis of the system of responsibility and transparency of work in the system of public administration and defining of the direction of civil service systems development of in public administration, based on single principles of de-politization, professionalization, merit principle, etc. Result 2.1.1. Coordinated labour-legal status of employees in all areas of public administration, with the goal of strengthening of implementation of principles of de-politisation and professionalization, i.e. establishment of the system based on merits (merit system)


Progress made:

Problems:

Future steps:

60 | A P P A R

44.

Preparation and drafting the Law on wages in the public administration and amendments of specific laws for implementation of laws on wages, with ongoing consultations with the public

Result 2.1.2. Established transparent and fair remuneration system in the public administration


Achieved progress: The analysis has been made of the existing legal framework governing the salary system in the public sector (state bodies, local self-government units, public agencies and public services); the baselines were prepared for the development of the new Law on salaries; a special working group was formed to draft laws (there have been 12 meetings of the Working Group and were continuously conducted consultations with the relevant government authorities - in the period January-June 2015 there were about 40 meetings). The draft Law on System of remuneration in the public sector was prepared after the public consultations http://www.mduls.gov.rs/dokumenta-zakoni-javne-rasprave.php After the public hearing, the fine tuning process of the Law text with ministries in charge and unions’ representatives was made and the result was the new version of the draft Law (the session with the Social-Economic Council in extended composition was held previously)

Problems: The system is fragmented and uneven (in the analysis it was found that there are over 20 different regulations along with 18 other public agencies that, through specific acts independently regulate their salaries; about 900 different coefficients, 12 bases for the calculation and payment of wages, over 200 different basis to increase wages in PS etc.). In order to regulate the system and propose a unique solution without compromising the specificities of individual sectors, it is necessary to conduct extensive and comprehensive interdepartmental consultations (min. 40 meetings and several workshops over the past 6 months with another 12 meetings of the Special Working Group). The result was a draft law on remuneration (and this draft version has passed its three amendments through consultation). Discussions and consultations included representatives of all line ministries responsible for certain public services (health, education, social protection, culture, sport, tourism), as well as other state bodies, representatives of the RS National Assembly, AR Vojvodina, local self-government units, the City of Belgrade, judicial bodies, Ministry of Defence, MI, HRMS, the Republic Secretariat for Legislation. In addition, it is necessary to carry out an analysis of the financial effects of the new wage system proposed by the working version of the law. After the described process, the public hearing and the process of the text fine tuning with the unions and ministries in charge were held. Additionally, FIA (financial impact analysis) is necessary to be prepared.

Follow up: By the end of February 2016 the adoption of the Preposition of the Law by the Government is expected and putting the Law into the Parliament procedure. During the 2016. special laws will be prepared for closer implementation of this systematic Law.

http://www.mduls.gov.rs/dokumenta-zakoni-javne-rasprave.php

61 | A P P A R

45.

Preparation and adoption of the catalogue of work positions for all areas of the public administration system



Achieved progress: Instructions for making the catalogue were prepared, which was presented to the members of the Special Working Group to prepare the draft law on wages and to the Collegium of State Secretaries in January 2015; defined responsibilities for making the catalogue of line ministries and other state bodies; conducted extensive consultations and coordination processes (approximately 60 meetings), and given technical support by representatives of MPALSG and consultants in the preparation of the Catalogue of jobs and titles in state bodies, public services, units of local self-government and AR Vojvodina, which includes a list and description of all positions, jobs and titles that are performed in the public sector; workshops held with representatives of relevant government departments (ministries, representatives of the RS National Assembly, judiciary bodies, AR Vojvodina and LSGU, HRMS) in April 2015 and with representatives of relevant ministries for respective public services (education, social welfare, culture) and representatives of public services, institutions that carry out these activities in June 2015. Public hearing was held by publishing the working versions of the Catalogue and the fine tuning process of developing the final text of the Catalogue is in progres.

Problems: The scope of the catalogue and the fact that this is the first time in the RS to make a list, description and evaluation of all jobs in PS (about 500,000 employees). It was necessary to conduct comprehensive interdepartmental consultations (over 60 meetings and several workshops) and coordinate the activities of consultants of the World Bank and representatives of MPALSG, together with representatives of competent state bodies: - the organization of meetings in order to present Instructions for preparing a catalogue (from January-June 2015 there were about 60 meetings); - Continuous providing of expert recommendations and guidelines - organizing interactive workshops in order to correct Working versions of the catalogue... The 3rd circle of public hearings had been held for fine tuning of the Catalogue of working positions http://www.mduls.gov.rs/katalozi-radnih-mesta.php Besides of the large number of consultation meetings needed to be held, the ministries in charge were having difficulties in cooperation with public institutions.

Follow up: Implementation of the public debate on the Working version of the catalogue; drafting the proposal Document which will establish a catalog of jobs in PBS (2ndQ of 2016).

http://www.mduls.gov.rs/katalozi-radnih-mesta.php

62 | A P P A R

46.

Preparation and adoption of bylaws for enforcement of laws (regulations on coefficients, regulations on compensations of costs and other income)


MPALSG Status: not implemented Achieved progress: Problems: this activity is not possible to be implemented before the Law on remuneration in public sector is adopted together with other special laws on implementation of the System remuneration Law. There is a possibility that bylaws will not be necessary to be adopted at all because the Draft Law on remuneration is considering the option to include the question of the salary coefficients in the Law and not in the bylaws.

Follow up: Drafting the special laws implementing the System remuneration Law which will classify the jobs in the salary groups and salary levels set by the System remuneration Law (for public employees and civil servants and administrative employees in state bodies deadline is the 4th Q of 2016, and for employees in the police and army, deadline is 4th Q 2017)

47.

The analysis of shortcomings in the system of employment, evaluation, promotion and responsibility of civil servants and preparing baselines for the first stage of improving the system through amendments to the Law on Civil Servants For Result: 2.2.1. Elementary enhanced basic elements of HRM in order to prevent further politicization of the recruitment process, unraveling the quality of personnel and to attract good candidates to work in SA


Achieved progress: An analysis of the SEA provisions and their implementation was made, in order to identify shortcomings in the recruitment system (hiring), evaluation, promotion and responsibility. A document was drafted the Reform of state-civil service system - baselines, which proposes basic directions of future changes of LCS.The Draft Law on Amendments of Civil Servants’ Law has been prepared.

Problems: The necessity of making consequential amendments to LCS which will soon give the expected effects. Measure: The working draft of the law with the alternatives.

Follow up: Preposition of the Law to be adopted by the Government.

63 | A P P A R

48.

Preparing and establishing proposals for amending the Law on Civil Servants in accordance with the analysis of the act. 1 Result: 2.2.1 Elementary enhanced basic elements of HRM in order to prevent further politicization of the recruitment process, unraveling the quality of personnel and to attract good candidates to work in SA


Achieved progress: The Draft Law on Amendments of Civil Servants’ Law has been prepared.

Problems: Within reprioritisation in the activities of the Ministry and the necessity to investigate changes in the system and organization of professional training of public administration employees, and the impact of these changes on amendments to the Law on Civil Servants, it is in necessary to view this activity with the next activity (related to professional training) in order to have a comprehensive and unique access to amendements of the law .

Follow up: Preposition of the Law to be adopted by the Government and proposing the necessary amendments of by-laws that will support changes to the law and allow the implementation of legislation, particularly in the application of instruments to HRM (2nd Q of 2016).

49.

Preparation and approval of (the relevant act of the Government) phased development plan of the central institution for professional training of employees in public administration Result: 2.3.1. Established system fundamentals for the general training of employees in public administration bodies and organizations


Achieved progress: Representatives of competent institutions who will be participants in the preparation of these two documents (the phase of development and the draft law) met in May 2015 in order to set the necessary steps for the implementation of these activities. In 2014 "Analysis of possible models for establishing an institutional framework for the training of civil servants" was made by prof. Milovanovic (GIZ), which will be the starting point for the design phase of development and legislative solutions. The ReSPA consultants made a Road map for establishing Central Training Institution with cost estimates in November 2015.

Problems: Due to different prioritization activities (fiscal consolidation and public administration rationalization), there is an attitude that this activity and the preparation of the Law on National training institution should be connected in the same activity.

Follow up: from December 2015 until march 2016. UK Government through the Good Governance Fund and „Towards a Central Training Institution for Public Servants“ Project is supporting the MPALSG in analyzing and mapping the excising HRM and public policy capacities, which should represent the basis for more successful future training targeting groups and prioritization of the programs and trainings of the Central Training Institution.

64 | A P P A R

50.

Preparation and determining of the Draft Act on founding a central institution, with consultations of the public Results: 2.3.1 The basics of the general professional training of employees in public authorities and organizations have been established


Achieved progress: Representatives of competent institutions who will be participants in the preparation of these two documents (the phase of development and the draft law) met in May 2015 in order to set the necessary steps for the implementation of these activities. In 2014 "Analysis of possible models for establishing an institutional framework for the training of civil servants" was made by prof. Milovanovic (GIZ), which will be the starting point for the design phase of development and legislative solutions. The ReSPA consultants made a Road map for establishing Central Training Institution with cost estimates in November 2015.

Problems: Due to different prioritization activities (fiscal consolidation and public administration rationalization), there is an attitude that this activity and the preparation of the Law on National training institution should be connected in the same activity.

Follow up: from December 2015 until march 2016. UK Government through the Good Governance Fund and „Towards a Central Training Institution for Public Servants“ Project is supporting the MPALSG in analyzing and mapping the excising HRM and public policy capacities, which should represent the basis for more successful future training targeting groups and prioritization of the programs and trainings of the Central Training Institution.

51.

Preparation and determining the Draft Law on Employees in AP and LSGs Results: 2.3.2 The regulatory framework for the development of the HRM function in AP and LSGs has been established


Progress made: The government adopted the Draft Law in October 2015 and sent it to the Parliament for adoption. Problems: Future steps: Enactment of the Preposition of the Law by the National Assembly at shortest notice (Quarter 1 2016)

65 | A P P A R

52.

The adoption of a strategic document defining the directions and activities for establishing the system of professional development at the local level - Strategy for professional training of employees in local self-government units Results: 2.3.2 The regulatory framework for the development of the HRM function in AP and LSGs has been established


Progress made: The Strategy of professional training of the LSG employees in the RS was adopted on 12 March 2015. In addition to the review of the situation and existing problems, it defines the concept of establishing a uniform system of professional training of local self-government employees, deals with the professional development program, the method of coordination of national and local authorities in this field, model of financing the preparation and realization of the program of professional development. This activity contributes to strengthening the administrative capacities in town and municipal administrations. http://www.slglasnik.info/sr/27-18-03-2015/28201-strategija-strucnog-usavrsavanja-zaposlenih-u-jedinicama-lokalne-samouprave-u-republici-srbiji.html

Problems:

Future steps: Implementation of the Strategy for professional training of local self-government employees and AP for its implementation.

53.

Introducing the local self-government employees to a new legal framework through the publications and other written materials Results: 2.3.2 The regulatory framework for the development of the HRM function in AP and LSGs has been established


Progress made: Problems: Two preconditions for the beginning of realization of the project have not been met, human resources management in LSGs - implemented by the Council of Europe Donation EU IPA 2012. Two unfulfilled preconditions for the commencement of the project are: 1. 1. Adoption of the Law on Employees in AP and LSGs 2. Adoption of the Law on Salaries for local government employees Agreement between the EU and the Council of Europe has been signed, but the implementation of the project will begin upon the adoption of these two laws. The deadline for adoption of the Law is 31 March 2016. If that law fail to be adopted by that date, the Agreement will be considered null and void. The project was initially planned to last for 36 months, but this period was reduced to 24 months due to delays in its implementation.

Future steps: Enactment of the Preposition of the Law by the National Assembly as soon as

possible (Quarter 2 2016). Project implementation.

http://www.slglasnik.info/sr/27-18-03-2015/28201-strategija-strucnog-usavrsavanja-zaposlenih-u-jedinicama-lokalne-samouprave-u-republici-srbiji.html

http://www.slglasnik.info/sr/27-18-03-2015/28201-strategija-strucnog-usavrsavanja-zaposlenih-u-jedinicama-lokalne-samouprave-u-republici-srbiji.html

66 | A P P A R

54.

Realization of informative seminars to meet decision makers and employees in the AP and LSGs Results: 2.3.2 The regulatory framework for the development of the HRM function in AP and LSGs has been established





55.

Preparation and adoption of bylaws to establish instruments for human resources management in accordance with the new legal framework Results: 2.3.2 The regulatory framework for the development of the HRM function in AP and LSGs has been established


Progress made: Problems: The Law on Employees in AP and LSGs, which stipulates founding of the Council, has not been adopted. The government adopted the Draft Law in October 2015 and sent it to the Parliament for adoption. Consideration of the Draft Law and its enactment by the National Assembly at shortest notice (Quarter 1 2016)

Further steps: Adoption of the Law on Employees in AP and LSGs (45 days from the date of entry into force of the Law on employees in the AP and LSGs)

67 | A P P A R

56.

Creating and publishing models of local legal acts and other documents necessary for law enforcement, consultations with the SCTM network of chief municipal administration and distribution at the local level Results:2.3.3 Strengthened capacities of local government employees for human resource management





57.

Developing a network of managers of units for human resources management in AP and LSG within the SCTM Results:2.3.3 Strengthened capacities of local government employees for human resource management





68 | A P P A R

58.

Evaluation of the existing software for human resource management in LSGs and development of the concept of unified electronic software for LSGs Results:2.3.3 Strengthened capacities of local government employees for human resource management





59.

Establishing the Council for Professional Training in LSG Units Results: 2.3.4. Compliant, permanent and sustainable system of professional training for local government employees, which will increase the level of knowledge and skills of local government employees necessary for the achievement of the basic postulates of modern local government has been established


Progress made: The Draft Law on Employees in AP and LSGs has been prepared and sent to the Government

Problems: The Law on Employees in AP and LSGs, which stipulates founding of the Council, has not been adopted. Planned to be implemented after the adoption of the Law on Employees in AP and LSGs. The Law envisages founding of the Council.

Future steps: Adoption of the Law on Employees in AP and LSGs. Planned to be implemented

after the adoption of the Law on Employees in AP and LSGs. The basis for founding of the Council is adoption of the Law. To establish the system for professional training of employees in local self-government units successfully, it is envisaged that the Government forms the Council for Professional Training (Quarter II 2016). Following the adoption of the Law, the implementation of projects shall commence - Human Resource Management in LSGs - Donation EU IPA 2012 Project implemented by the Council of Europe. Specific activities after adoption of the Law related to the Council for professional development include: 1) Nomination and appointment of members; 2) Training for members of the Council; 3) Regular meetings of the Council; 4) Analysis and assessment of the situation related to professional development in local governments in the last 3 years; 5) Performed assessment of the situation and defined recommendations for the Council for Professional Training and MPALSG.

69 | A P P A R

60.

Determining roles and responsibilities of the MPALSG and other ministries related to the operations of professional development in LSGs, including job descriptions of employees and their professional training Results: 2.3.4. Compliant, permanent and sustainable system of professional training for local government employees, which will increase the level of knowledge and skills of local government employees necessary for the achievement of the basic postulates of modern local government has been established





61.

Determining the compulsory elements of professional development programs for employees in LSGs and uniform criteria regarding the requirement governing the procedure for general cross-sector and sector programs (rules for adoption of the program, rules for the assessment of implemented programs) Results: 2.3.4. Compliant, permanent and sustainable system of professional training for local government employees, which will increase the level of knowledge and skills of local government employees necessary for the achievement of the basic postulates of modern local government has been established





70 | A P P A R

62.

Establishing the conditions to be met by operators (natural and legal persons) for the implementation of the program of professional training of employees in local self-government units and commencement of the process of periodic accreditation of these entities Results: 2.3.4. Compliant, permanent and sustainable system of professional training for local government employees, which will increase the level of knowledge and skills of local government employees necessary for the achievement of the basic postulates of modern local government has been established





63.

Establishing mechanisms for keeping records of approved and implemented programs of general and special professional development in LSGs Results: 2.3.4. Compliant, permanent and sustainable system of professional training for local government employees, which will increase the level of knowledge and skills of local government employees necessary for the achievement of the basic postulates of modern local government has been established





71 | A P P A R

64.

Preparation of the Public Financial Management Reform Programme with the Action Plan by the Ministry of Finance, on the basis of the preliminary results of the Public Expenditure and Financial Accountability Assessment and its adoption. Result: 3.1.1. Adopted the Public Financial Management Reform Programme.

MoF Status: implemented

Progress made: in November 2015, the Public Financial Management Reform Programme was adopted for the period 2016-2020. Fulfilled the obligation taken by the RS and accomplished one of the requirements for using Sector Budget Support for the Public Administration Reform Sector from IPA 2015.

Problems: Delay due to delay of the PEFA report on the Public Expenditure and Financial Accountability Assessment (prepared by the World Bank) which represented a basis for the development of the Public Financial Management Reform Programme.

Future steps:

65.

Modification and complementation of the Public Financial Management Reform Programme, on the basis of the Final Report on the Assessment of Public Expenditure and Financial Accountability. Result: 3.1.1. Adopted the Public Financial Management Reform Programme.

MoF Status: implemented

Progress made Quality inputs for the development of the Public Financial Management Reform Programme 2016-2020.

Problems: Delay due to delay of the PEFA report on the Public Expenditure and Financial Accountability Assessment (prepared by the World Bank) which represented a basis for the development of the Public Financial Management Reform Programme.

Future steps:

72 | A P P A R

66.

Evaluation of capital projects by budgetary users and defining the implementation plan of evaluated capital projects. Result: 3.2.2. Adopted and applied planning and implementation of capital projects on the basis of priorities and enhanced predictability in implementation.

MoF Status: partially implemented

Progress made: Analysis of the current state of managing capital projects was performed. Article of the Law on Budget System 54a was amended, as a basis for the adoption of the Regulation on content, method, assessment and monitoring of capital projects implementation. By the conclusion of the Government, the date for adoption of the Regulation was determined - 28/02/2016.

Problems: Adoption of the Regulation is a basis for the evaluation of capital projects. By Conclusion of the Government, it shall be adopted by 28/02/2016. A longer time period is needed for implementation of the Regulation and adoption of instructions and methodologies.

Future steps: The adoption of the Regulation on content, manner of preparation, assessment, monitoring implementation and reporting on implementation of capital projects; Preparation and adoption of methodologies and instructions for the application of the Regulation; Preparation of modules for training budgetary users in relation to the application of the Regulation and the use of methodology and instructions; Pilot phase of the capital projects assessment by budgetary users and the Ministry of Finance; Implementation of training sessions for budgetary users concerning the application of the Regulation and use of methodology and instructions; Assessment of capital projects by budgetary users and the Ministry of Finance. Predicted deadline for the above activities is the end of 2017.

67.

Adoption of new strategy for development of internal financial control in the public sector for the period 2015-2019 including consultations with the public, key budgetary users and the European Commission. Result: 3.3.1. Adopted the medium-term framework for the implementation of internal financial supervision in the public sector

MoF Status: not implemented

Progress made Draft was prepared of the Strategy for Development of Public Internal Financial Control for the period 2015-2019

Problems: On the Second Intergovernmental Conference of the Republic of Serbia and the EU, on 14/12/2015 in Brussels, a negotiation chapter was opened - Chapter 32 - Financial Control. Harmonization is needed with the Common Position of the EU for Chapter 32 - Financial Control.

Future steps: Complementation of the Draft Strategy for Development of Public Internal Financial Control for the period 2015-2019 in accordance with the recommendations of the PEFA report by the World Bank and complements to the Strategy for Development of Public Internal Financial Control in accordance with the Common Position of the EU for Chapter 32-Financial Control. The new estimated deadline is the first quarter of 2016.

73 | A P P A R

68.

Implementation of the assessment of professional, administrative and institutional capacities of the Ministry of Finance for ensuring full functionality of the Department for Internal Control and Internal Audit for the implementation of activities within the competence of the central unit for harmonization of financial management and control. Result: 3.3.2. Enhanced system of Financial Management and Control (FMC)


Progress made: Implementation of assessment of professional, administrative and institutional capacities of the MoF Department for Internal Control and Internal Audit is planned within Twinning project “Further support to development of IFCPS in the Republic of Serbia” within the framework of IPA 2013, planned as support to the RS for opening EU Chapter 32. Implementation of the project was not started by the fourth quarter of 2015. Within the Report on Screening for Chapter 32 – Financial control, in part III. ASSESSMENT OF THE LEVEL OF HARMONIZATION AND CAPACITY FOR IMPLEMENTATION, point III.a. Internal Financial Control in the Public Sector (IFCPS) and external audit, assessment of capacities of the MoF Sector for Internal Control and Internal Audit, which is encompassed by the Negotiation Position of the Republic of Serbia for Chapter 32 - Financial Control. On the Second Intergovernmental Conference of the Republic of Serbia and the EU, on 14/12/2015 in Brussels, a negotiation chapter was opened - Chapter 32 on financial supervision.

Problems:

Future steps: Twinning project: “Further support to the development of IFCPS in the Republic of Serbia” within IPA 2013 is planned for the last quarter of 2016, and within this project assessment would be performed of professional, administrative and institutional capacities in the Ministry of Finance for ensuring full functionality of the Department for Internal Control and Internal Audit for implementing activities belonging to the competence of the central unit for harmonization of financial management and control and internal audit. Within the assessment, it is necessary to take into account technical aspects needed for monitoring implementation of the result indicators taking into account that it concerns all users of public resources at central level and the ratio of required capacities (development of information network, resources for the training of new employees, resources for earnings and other expenses) for monitoring indicators in relation to enhancement of financial management and control system in those UPS (fourth quarter of 2016.)

74 | A P P A R

69.

Assessment of professional, administrative and institutional capacities in the Ministry of Finance for ensuring full functionality of the Sector for Internal Control and Internal Audit for implementing activities belonging to the competence of the central unit for harmonization of the internal audit. Result: 3.3.3. Enhanced capacities and functionality of the internal audit system.


Progress made: Problems: Data for the confirmation of the planned value for 2015 is collected from the Annual Reports on Internal Audit Activities which are delivered by the public resource users by 31 March of the current year for the previous year, in accordance with Article 82 Of the Budget System Law

Future steps: The estimated new deadline is second quarter of 2016.

70.

Assessment of professional, administrative and institutional capacities in the Ministry of Finance for ensuring full functionality of the budgetary inspection. Result: 3.4.1. Ensured capacities and functionality of the budgetary inspection

MoF Status: partially implemented

Progress made: Adopted new systemisation of working places according to which the number of employees was increased by 6 compared to previous systemisation.

Problems: The adopted Public Finance Reform Programme 2016-2020 changed the deadlines to II quarter of 2016

Future steps: The estimated new deadline is second quarter of 2016.

71.

Auditing of the legislative framework for the work of the budgetary inspection to ensure work functionality in accordance with the defined competences of the financial inspection which is compatible with the concept of public internal financial control. Result: 3.4.1. Ensured capacities and functionality of the budgetary inspection


Progress made: Problems: By the adopted Public Financial Management Reform Programme 2016-2020 the deadlines were changed to IV quarter of 2016

Future steps: Amendments to the Budget System Law in the part of the budgetary inspection competences and manner of operation. Future steps: The estimated new deadline is the fourth quarter of 2016.

75 | A P P A R

72.

Enhancement of functionalities of the Public Procurement Portal. Result: 3.5.1. Operationally and methodologically enhanced public procurement system

DPP Status: implemented

Progress made: Announcement and modification of the purchaser procurement plans has been made possible. The search option of the Portal was enhanced by introducing the option “quick search” that satisfies the requirements of many users to simplify the search of the Portal by using basic activities defined by the General Procurement Dictionary, and simultaneously this option allows less-experienced Portal users to find the public procurement they are interested in more easily. Apart from the above, English version of the Portal was made. The following is the link to the Portal: http://portal.ujn.gov.rs/

Problems:

Future steps:

73.

Preparation and establishing of the Draft Law n Amendments to the Law on Public Procurement and consultations with the public Result: 3.5.1. Operationally and methodologically enhanced public procurement system

DPP Status: implemented

Progress made: With Amendments to the Law on Public Procurement, provisions laid down by the previous law were enhanced for better implementation of the public procurement principles, greater transparency and efficiency of public procurement procedures. The level of harmonization of the Law on Public Procurement with the EU regulations has been enhanced (with directives 2014/24 / EU and 204/25 / EU). The document can be accessed on the following link: http://www.ujn.gov.rs/ci/propisi/zakon

Problems:

Future steps:

http://portal.ujn.gov.rs/

http://www.ujn.gov.rs/ci/propisi/zakon

76 | A P P A R

74.

Regulation of establishment, functioning and responsibility of the working groups for the development of regulations (amendments to the Regulation on principles for internal organization and systematization of job positions) Result: 4.1.1. Enhanced and transparent process of creation and implementation of the regulation in a manner that ensures interdepartmental coordination, participation of the public and consideration of the possible effects, monitoring implementation, evaluation and reporting on the regulation implementation.

NPPS Status: not implemented

Progress made Amendments to the Regulation on principles for internal organization and systematization of job positions have not yet been adopted, but NPPS, in cooperation with MPALSG, carries out necessary activities related to the analysis of the existing practice of establishment, functioning and responsibility of working groups for the development of regulations and documents of public policies.

Problems: Amendments to the Regulation on principles for internal organization and systematization of working places have not yet been adopted, but NPPS, in cooperation with MPALSG, carries out necessary activities related to the analysis of the existing practice of establishment, functioning and responsibility of working groups for the creation of regulations and documents of public policies.

Future steps: Formulating of amendments to the Regulation on principles for internal organization and systematization of working places and their adoption (second quarter of 2016)

75.

Preparation and adoption of the strategic Government document related to the legislative process. (The Regulatory Reform Strategy in the RS for the period 2015-2017 and Action Plan for the implementation of the Strategy) Result: 4.1.1. Enhanced and transparent process of development and implementation of the regulation in a manner that ensures interdepartmental coordination, participation of the interested public and consideration of the possible effects, monitoring implementation, evaluation and reporting on the implementation of the regulation.


Progress made: After meetings of the Project Group for development of the Strategy with the Action Plan, several months of consultations with the interested parties and public discussion, NPPS prepared the Strategy of regulatory reform and enhancement of the public policy management system for the period 2016-2020 and the Action Plan for its implementation for the period 2016-2017. The Strategy and the Action Plan were adopted on a Government session held on 23 January 2016, which is in accordance with the Annual Government Work Programme for 2016. http://www.rsjp.gov.rs/usvojena-strategija-razvoja-u-oblasti-upravljana-javnim-politikama-i-zakonodavnim-procesom/t

Problems: In the process of Strategy creation, the NPPS recognized the necessity of strategic organization in the area of public policy management and, for that reason, additional time was needed for the preparation of the Strategy Draft and consultations, causing the adoption later than it were primarily planned.

Future steps:

http://www.rsjp.gov.rs/usvojena-strategija-razvoja-u-oblasti-upravljana-javnim-politikama-i-zakonodavnim-procesom/t

http://www.rsjp.gov.rs/usvojena-strategija-razvoja-u-oblasti-upravljana-javnim-politikama-i-zakonodavnim-procesom/t

77 | A P P A R

76.

Preparation of training programs and implementation of training programmes for civil servants related to the topic of analysis of the effects of regulations, public policy documents and the legislative process. Result: 4.1.1. Enhanced and transparent process of development and implementation of the regulation in a manner that ensures interdepartmental coordination, participation of the interested public and consideration of the possible effects, monitoring implementation, evaluation and reporting on the implementation of the regulation.

NPPS Status: Planned activities for the previous period were executed

Progress made: The activity is developing according to the plan. After the package of documents has been adopted, the training programme will be additionally enhanced to fully reflect solutions stipulated by the adopted documents, and to adequately prepare civil servants to apply and implement the adopted decisions and provisions in practice.

In ½ 2015. The NPPS has created and implemented a detailed training programme for civil servants related to enhancement of public policy management system. The training programme consisted of three modules, one of which was analysis of public policy effects. The NPPS organized and implemented the whole programme in three cycles, while a total of 35 civil servants (managers and employees) completed the training. Apart from these, the NPPS devised and participated in conducting training related to the topic of analysis of the effects of regulations and public policy documents, and it also conducted training related to the enhancement of the legislative process for the year 2015. All these training programmes were part of the programme of general professional development of managers and civil servants implemented by the Department for managing staff in cooperation with several state administration bodies. All training sessions were completed by a total of 70 participants (managers and civil servants). All implemented training programmes, also including other modules for which training was organized during 2015 (planning and monitoring techniques, reporting and assessment) contribute to better knowledge of civil servants related to the analysis of effects of regulations and public policy documents, and enhancement of the legislative procedure.

Problems:

Future steps: The NPPS organizes continuation of training programme implementation for civil servants from different SAB in cooperation with HRMS. Finalizing consultations and adoption of documents.

77.

Preparation and establishing of the Draft Law on General Administrative Procedure. Result: 4.2.1. Enhanced and harmonized legislative framework in administrative actions of the state administration bodies, i.e. public administration bodies at all levels of authority.


Progress made: Determined the Draft Law on General Administrative Procedure, February 2016 http://www.srbija.gov.rs/vesti/dokumenti_pregled.php?id=256460

Problems: the process was delayed due to great amount of interdepartmental harmonization and consultations with SIGMA and the European Commission, lasting longer than it was originally planned. This process was completed by the end of December 2015.

Future steps: The General Assembly should adopt the Draft Law (first quarter of 2016)

http://www.srbija.gov.rs/vesti/dokumenti_pregled.php?id=256460

78 | A P P A R

78.

Enhancement of the internal organization and procedures within MPALSG for establishing and implementing management function changes in PA. Result: 4.2.4. Public Administration applies principles of good administration in its work, and in particular it ensures response to the needs of citizens in planning and implementing public policies


Progress made: different planned conclusions were made in accordance with the project of the

Norwegian Embassy “Managing Changes-Strengthening MPALSG Capacities”, with the aim of strengthening the capacity of the Ministry which received new functions in the PA Reform, but also including the analysis of expectations of interested parties by the Ministry, which is the leader of changes in PA that must be implemented both externally (as a coordinator and supervisor of PA reform) and internally (changing its own structure). Identification of business processes was completed and it involved: completing the list of processes with the main elements of the process which include identification of: the participants in the process, owners of the process, measurable process goals, frequency of reporting, content of the report for monitoring the level of objective accomplishment and authors who will create detailed procedure concerning the process implementation manner. The lists of identified processes are an important element in every procedurally-organized systematisation. Within the project, a functional analysis of the Ministry and resource allocation analysis was performed, functions of the Ministry were determined in accordance with the competence and law regulations. In accordance with the conclusions and recommendations from the project and actual factors and parameters, a reorganization of the Ministry was carried out and a Rulebook was created on internal organization and systematization of job positions in the Ministry of Public Administration and Local Self-Government

Problems: after completed objective and independent conclusions and determined functions of

the MPALSG within the project, conditions, i.e. objective possibility was not created for reorganizing

MPALSG which would fully allow execution of determined functions and needs due to the lack of

staff capacities (Decision on the maximum number of...)

Future steps: In the following period, in accordance with the continuation of the process of PA rightsizing and optimization, care will be taken of recommendations and conclusions of the Project and reorganization of MPALSG will be conducted in accordance with the objective possibilities and parameters in the most optimal and most efficient way to successfully implement PA reform and carry out all other activities from its competence defined by law. A proposal of the project framework was devised for the following phase which should include: process mapping, process optimization, HRM, (KPI - key performance indicator), change in organizational culture.

79 | A P P A R

79.

BSA enhanced and established internal procedures from the aspect of more efficient conduct and decision-making concerning rights, obligations and legal interest of the citizens, also including resolving of citizen complaints and records of citizen complaints, in accordance with the recommendations of the Protector of Citizens. Result: 4.2.4. Public Administration applies principles of good administration in its work, and in particular it ensures response to the needs of citizens in planning and implementing public policies


Progress made: A Special working group was established for creating the Draft Law on Amendments to the Law on Protector of Citizens and the draft text is in the preparation phase; Draft Law on General Administrative Procedure was determined in February 2016.

Problems: as a previous step, it is necessary to amend the Law on the Protector of Citizens and adopt a new Law on General Administrative Procedure (the Draft of which was determined in February 2016)

Future steps: By the final version of the Action Plan for Negotiation Chapter 23, the second quarter of 2016 was established as the final deadline for the amendment of the Law on Ombudsman

80.

SABs and Gen Sec establish the organizational structure for relations with the Protector of Citizens and the Commissioner for Protection of Equality (monitoring conduct according to recommendations, preparation of the report, etc.) Result: 4.2.4. Public Administration applies principles of good administration in its work, and in particular it ensures response to the needs of citizens in planning and implementing public policies



Future steps: Change of the regulations is planned that would more closely arrange the organizational structures for relations with independent state authorities, reporting mechanisms, etc. (II quarter of 2016)

80 | A P P A R

81.

Preparation and establishing of the Draft Law on Inspection Oversight. Result: 4.3.1. New unique legal framework for inspection oversight was established and introduced to the public


Progress made: On 27 February 2015, the Government established the Draft Law. The General Assembly adopted the Law on Inspection Oversight on 15 April 2015. (The Law entered into force on 29 April 2015). http://www.pravno-informacioni-sistem.rs/SlGlasnikPortal/pages/home.xhtml;jsessionid=9445082C3DAAAE804FFCD62DC3B61031

The objective of the Law is better coordination and harmonization of the inspection oversight including a variety of different inspections, standardization and harmonization of the inspection control and inspection practice and providing support to sustainable business operation and development of economy in accordance with the regulations. The Law application is delayed, i.e. its full application will begin after two years of its entry into force, more precisely on 29 April 2016. However, the application of provisions of this law relating to the control of unregistered entities and unreported activities (the so-called grey economy) started on 30 July 2015. with the aim of decreasing the level of grey economy. According to the Business Registers Agency, only in August 2015, the first month of activity performance control by unregistered entities on the basis of the Law on Inspection Oversight, 3840 entrepreneurs were registered, which is by far the best result since the beginning of 2014. In comparison to August 2014, the number of newly-registered entrepreneurs (month before the month when its application began) in August is greater by 1602, which is an increase of 71.6%.

Problems: -

Future steps: Full application of the Law on Inspection Oversight shall begin on 29 April 2016.

http://www.pravno-informacioni-sistem.rs/SlGlasnikPortal/pages/home.xhtml;jsessionid=9445082C3DAAAE804FFCD62DC3B61031

http://www.pravno-informacioni-sistem.rs/SlGlasnikPortal/pages/home.xhtml;jsessionid=9445082C3DAAAE804FFCD62DC3B61031

81 | A P P A R

82.

Preparation and adoption of bylaws for the application of the Law on Inspection Oversight Result: 4.3.1. New unique legal framework for inspection oversight was established and introduced to the public


Progress made Five bylaws were adopted: two regulations adopted by the Government of the Republic of Serbia (the Regulation on common elements of risk assessment in inspection oversight and the Regulation on the appearance of forms and the manner of managing records on the inspection oversight “Official Gazette of RS” No 81/15) and three rulebooks adopted by the Minister of State Administration and Local Self-Government (Rulebook on the programme and manner of conducting exams for inspectors, Rulebook on the appearance of the form of official inspector legitimation and the Rulebook on general form of the records on inspection control, “RS Official Gazette” No 81/15). Decision on establishment of the Coordinating Committee was adopted on 23 July 2015 (“RS Official Gazette” No 66/15). Applied since 4/8 /2015.

Problems: duration and the range of interdepartmental consultations and the consultation process with interested parties which included participants in inspection oversight (inspections, business associations, businessmen, etc.).

Future steps: The Law on Inspection Oversight stipulates that ministers competent for a certain area of the inspection oversight should adopt bylaws that regulate: special elements of risk assessment, special elements of a plan of specific inspection oversight; conditions and manner of collecting and testing samples, forms and manner of performing internal control of inspections.

83.

Preparation of Guideline for application of the Law on Inspection Oversight. Result: 4.3.1. New unique legal framework for inspection oversight was established and introduced to the public


Progress made Guideline for preparation of the Law on Inspection Oversight is available on web presentations of MPALSG http://mduls.gov.rs/doc/dokumenta/inspekcijski-nadzor/Vodic%20za%20primenu_ZoIN_9%20novembar%202015.pdf and Coordination Board http://www.inspektor.gov.rs/#/dokumenta

Problems: Future steps: Participants of the inspector training programme for the application of the Law on Inspection Oversight (“Training for Trainers”) will receive the Guideline for the application of the Law. The Guideline may be used for the preparation of inspector exams, in combination with other materials.

http://mduls.gov.rs/doc/dokumenta/inspekcijski-nadzor/Vodic%20za%20primenu_ZoIN_9%20novembar%202015.pdf



http://www.inspektor.gov.rs/#/dokumenta

82 | A P P A R

84.

Informing, counselling and training the economy, citizens, professional and general public on the Law and its application and inspection oversight reform. Result: 4.3.1. New unique legal framework for inspection oversight was established and introduced to the public


Progress made Number of informed participants in 2015: 1296 on 17 presentations of the Law on Inspection Oversight. Videos concerning the Law on Inspection Oversight were broadcast in electronic media: RTS, Pink, B 92,Hepi, Kopernikus, Naša TV, Siti Subotica and others. Information concerning the Law on Inspection Oversight was published in the following newspapers: Večernje

novosti, Danas, Kurir, Politika and others. Problems:

Future steps: Further presentation of the novelties of the Law at presentations organized by the Ministry of Public Administration and Local Self-Government in cooperation with USAID Project for better work conditions in cooperation with regional economic chambers and administrative districts and other business and professional associations. Publishing texts in the media, creation of informational brochures.

83 | A P P A R

85.

Establishing Coordination Board in accordance with the Law on Inspection Oversight Result: 4.3.2. Ensured work coordination of all inspections


Progress made Decision on establishing the Coordinating Committee was adopted on 23 July 2015 (“RS Official Gazette” No 66/15). Applied since 4/8/2015. The purpose of establishing the Coordination Commission was to introduce an institutional framework with the aim of conducting more comprehensive and efficient inspection oversight and avoiding overlapping and unnecessary oversight repetition. Coordination of inspection oversight contributes to reducing administrative burden of the economy, citizens and inspection and establishes sustainability of the new state. Professional and methodological instructions for the oversight of unregistered business entities and professional and methodological explanations for inspections on conducting investigation in a residential area within the procedure of inspection oversight was prepared and published on MPALSG website and delivered to all inspections. http://www.mduls.gov.rs/inspekcijski-nadzor.php Within the Coordination Board, by the decision of the Coordination Commission of Inspection Oversight No 119-01-194/2015-04 of 6 October 2015, working groups and expert teams of the Coordination Commission were formed for specific areas and specific questions concerning inspection oversight. Seven working groups were formed which have started to work: The Working Group for Combating Illegal Trade; for safety of buildings; for food; for protection of natural resources; for public health; for catering, and for internal control. Two expert teams have been formed: The Expert team for Combating Informal Work (“black labour”) and the Expert team for transport of passengers and goods by road, water and railway. The website of the Commission has been established www.inspektor.gov.rson which all documents are available related to the work of the Coordination Commission, video materials from the inspector training programmes, links to published control lists of the state inspections, contact information of the state inspections, etc. The Coordination Board held its first session in August 2015, adopted the Rules of Procedure 15 days after the entry into force of the Decision and started performing activities and tasks, i.e. it functions smoothly and coordination and enhancement of inspection efficiency are accomplished, primarily in the area of unregistered entities and in relation to the preparation of the application of the Law. The Coordination Board consists of two bodies: Council (at the ministerial level) and the Oversight Coordination Committee (at the level of state inspection managers). In 2015, the Board held 4 sessions, while the Council held one meeting.

Problems: -

Future steps: The Coordination mechanism has achieved its first results in controlling unregistered business entities and by using and exchanging data of the existing databases. The Coordination Commission performs activities and tasks determined by the Law on Inspection Oversight and the Decision on Establishment, submits reports on its work to the Government, gives expert opinion concerning the proposals of state inspection control lists, organizes regular sessions of the Coordination Commission of the Inspection Oversight, etc.


http://www.inspektor.gov.rs/

84 | A P P A R

86.

Analysis of the inspections business processes. Result: 4.3.2. Ensured work coordination of all inspections

MPALSG Status: Partially implemented project. Implemented activity 1: Determining state of the

inspections bodies and initial analysis of the business processes from the Law on Inspection

Oversight and the accompanying bylaws

Progress made: In carrying out the analysis of the inspections business processes by the

Directorate for Electronic Government in 2015, with the aim of establishing a Unique information

system for inspections - eInspector, tender documentation has been prepared and public

procurement was carried out for the purchase of relevant service, the contract has been signed and

the implementation of the project has started in accordance with the project plan. Workshops were

held with 39 Inspectorates and contractual activity 1 was implemented - Determining the state of

inspection bodies - initial analysis of the business processes from the Law on Inspection Oversight

and accompanying bylaws. Implementation of activities 2a and 2b is in progress - Development of

specifications of business processes common to all inspections and specific business processes for

pilot inspections (Administrative Inspectorate, Inspectorate of Work and Market inspection).

Problems: Inertness and lack of cooperation of certain inspections

Future steps: Implementation of Activity 2: Creation of specifications of business processes

common to all inspections and specific business processes for pilot inspections (Administrative

Inspectorate, Inspectorate of Work and Market inspection).establishing connections to the

BRA and the MoI.

87.

Providing support to work and operation of the Coordination Board. Result: 4.3.2. Ensured work coordination of all inspections


Progress made: Professional and administrative technical support to the work of the Coordination Commission is provided by the employees in the State Administration Department, work and legal relations and salaries of the Ministry of Public Administration and Local Self-Government with the support of the USAID Project for better work conditions.

Problems: It is necessary to strengthen the capacities, increase knowledge and exchange experiences with similar units in EU countries in the mentioned area in MPALSG.

Future steps: Article 12 Of the Law on Inspection Oversight, establishment of a special internal organizational unit for support to the Coordination Commission is planned within the ministry competent for state administration affairs.

85 | A P P A R

88.

Establishment of a single information system (eInspector) for pilot inspections Result: 4.3.2. Ensured work coordination of all inspections

MPALSG-DEG Status: Finalization of the first phase of the eInspector project is in progress and it implies listing of all business processes of all state inspectorates and creation of technical documentation for the second phase of the project. The end of these activities is expected by May 2016, followed by further work through tender process, where it is planned to start the second phase by the end of 2016.

Progress made: Workshops were implemented with all inspectorates (over 40 workshops) and the processes are being prepared.

Problems: There are no serious problems in the implementation itself, i.e. there are no unexpected situations. What created the three-month delay is the implementation of the planned risk during the tender process. Namely, the project team predicted a possible complaint during the tender process by the Republic Commission for Protection of Rights in Public Procurement Procedures and their predictions came true. Although the claim was unfounded, the whole process was stalled for three months which caused the three-month delay

Future steps: Finalization of the first phase of the project and commencement of the second phase with the public procurement procedure for choosing the bidder for the creation of eInspector information system.

86 | A P P A R

89.

Monitoring the implementation of obligations that follow from the Law on State Inspections and other state bodies, ex-post analysis and taking measures for the enhancement of application and implementation of training for employees in the relevant ministries that perform these activities. Result: 4.3.2. Ensured work coordination of all inspections


Progress made: Professional and methodological explanations were published for investigation in residential areas in the inspection control procedure, on the treatment of inspection towards unregistered entities, for coordination and inspection control in administrative districts and local self-government units and for the preparation of control lists for inspection oversight. Available on the website of the Ministry of Public Administration and Local Self-Government: http://mduls.gov.rs/inspekcijski-nadzor.php and on the website of the Coordination Board: http://www.inspektor.gov.rs/#/dokumenta.

Implementation of the training programme “Training for Trainers” for approximately 220 inspectors - future trainers has commenced, related to new institutes and decisions of the Law on Inspection Oversight and the so-called light skills needed to work as an inspector, and implemented by the Ministry of Public Administration and Local Self-Government in cooperation with USAID project for better business conditions and the organization Partners Serbia. After the training, future trainers will transfer their knowledge and experiences to their colleagues and partners. Out of nine planned training programmes, three were held in 2015 in Požarevac, Belgrade and Kraljevo, and they were attended by 101 inspector.

Problems:

Future steps: on the basis of the completed training sessions, the inspectors who have successfully completed the training programme, will train their colleagues in the area of inspection oversight for the preparation of inspector exams.

90.

Analysis of the state of web presentations of SABs and LSGUs according to the Guidelines for creation of web presentations. Result: 5.1.1. All information concerning the work of public administration (number of employees, finances, activities) is available online in a harmonized form


Progress made: Performed assessment of web presentations of state administration bodies, defined basic collection of services for the local self-government units. Defined composite index for the categorization of local self-governments on the basis of the level of e-government development. Devised programs for help and support for each of local self-government categories.

Problems: Information of local self-governments are not published in standardized way described by the Guidelines. It is necessary to strengthen the whole process by adding Guidelines and application obligations into the bylaw which needs to accompany the Law on State Administration and some similar law.

Future steps: Preparation of the bylaw and enhancement of the assessment process through creation of a self-assessment process on the eGovernment portal.

http://mduls.gov.rs/inspekcijski-nadzor.php

http://www.inspektor.gov.rs/#/dokumenta

87 | A P P A R

91.

Preparation and establishing of proposals for amendments to the Law on Free Access to Information of Public Importance that would raise the level of proactive publishing and updating of the information available to the public. Result: 5.1.1. All information concerning the work of public administration (number of employees, finances, activities) is available online in a harmonized form


Progress made: A Special working group was formed for the creation of the Draft, and the

creation is currently in progress. The Special working group works intensively on collecting all

relevant data and analysing problems that occurred in practice, so as to reach the text of the law

that will establish the most ideal balance between the needs of practice and legislation. Consultation

sessions were held with authorized persons before state bodies , judges of the Administrative Court

and representatives of NGOs, with the aim of exchanging experiences, identifying key issues and

finding the most adequate mechanisms for solving them. On 10/12/2015 in organization by

MPALSG and the Commissioner’s Department, a Workshop was held on Free Access to

Information of Public Importance, Problems in Practice. Apart from that, the Special working group

monitors solutions in other regulations for certain areas, such as the area of corruption (the National

Strategy for Anti-Corruption in the RS for the period 2013-2018)...

In practice, a problem was noticed in the conduct of public enterprises to which exercise of public

authorities was transferred, thus MPALSG, by decree number: 023-02-193/2015-17 of 20/11/2015,

for the purpose of oversight of the Law on Free Access to Information of Public Importance, asked

state authorities to deliver data on which public enterprise was trusted with the exercise of public

authorities by law within their competence. This is related to provisions of the Law on the Free

Access to Information of Public Importance which determine the obligation of public authorities to

create and publicly announce on web presentation the Work Booklet, the content of which is

prescribed by the Instructions adopted by the Commissioner for Information of Public Importance

and Protection of Personal Data (in relation to public enterprises, this obligation exists only for

certain state public enterprises which were explicitly entrusted with exercising public authorities by

law). The Administrative Inspectorate has taken certain steps in terms of filing offence reports

against managers of bodies that do not act in accordance with this law and the Instructions of the

Commissioner.

Problems:

Future steps: Final version of the Action Plan for Negotiation Chapter 23, the deadline for the adoption of the Law on Amendments to the Law on Free Access to Information of Public Importance is the second quarter of 2016

88 | A P P A R

92.

Signing of the Additional Protocol with the Charter that guarantees the participation of citizens in local self-government affairs (AP OGP) Result: 5.1.2. OCS and citizens involved in the processes of development, implementation and monitoring of public policies at national and local level.


Progress made:

Problems: Due to priority work on the package of laws in the area of LS, implementation of this activity is transferred to the following period. Practically, all conditions have been fulfilled, but by signing, formal and actual state would become equal.

Future steps: It is necessary to identify the most appropriate moment for signing (authorizing the signing) of the Additional Protocol (II quarter of 2016)

93.

Preparation, consultations and adoption of the Strategy for creation of supportive environment for development of civil society in Serbia for the period 2015-2019 and the Action Plan for its implementation (AP OGP) Result: 5.1.2. OCS and citizens involved in the processes of development, implementation and monitoring of public policies at national and local level.


Progress made: Strategy Draft has been made and the public discussion has been finished. The procedure of sending the Draft to be assessed by competent bodies.

Problems: Reasons for deviation from primary deadlines are staff changes in the Office for Cooperation with Civil Society

Future steps: Harmonization with the opinions of competent bodies and procedures of adoption in Government (first quarter of 2016).

94.

Preparation, consultations and determination of the Proposal for Amendments to the Law on State Administration in the part related to public work and cooperation with OCS and other relevant regulations so that the standards of cooperation of SABs with the civil society are harmonized with the standards of the European Council and the UN Convention against Corruption (in accordance with the previously performed analysis of deficiencies) Result: 5.1.2. OCS and citizens involved in the processes of development, implementation and monitoring of public policies at national and local level.


Progress made: Problems: A more comprehensive modification of the Law on State Administration is planned, and not only the part related to public work and cooperation of OCS and other relevant regulations.

Future steps: The new deadline is the fourth quarter of 2016.

89 | A P P A R

95.

Preparation and adoption of a bylaw that determines in more detail the way of cooperation of state administration and associations and other OCSs. Result: 5.1.2. OCS and citizens involved in the processes of development, implementation and monitoring of public policies at national and local level.


Progress made: Problems: The activity is conditioned by previous activity, i.e. by modification of the Law on State Administration. A more comprehensive modification of the Law on State Administration is planned, and not only the part related to public work and cooperation of OCS and other relevant regulations.

Future steps: The new deadline is the fourth quarter of 2016.

96.

Implementation of campaign for informing the public on mechanisms of participation in the process of adopting regulations at all levels (obligation according to APNSPK) Result: 5.1.2. OCS and citizens involved in the processes of development, implementation and monitoring of public policies at national and local level.


Progress made: An inter-sectorial working group was established with the aim of creating the campaign plan and programme (18/11/2014). The Campaign Plan and Programme with the Action Plan for its implementation was created in January 2015.

Problems: Preconditions were not fulfilled from the goal 3.1.3. of the APNSCC for professional and quality campaign implementation concerning the enhancement of the existing legal framework for civil participation.

Future steps: It is necessary to modify and adopt a legal framework that regulates lobbying and public participation in the process of regulation adoption, with improvement of mechanisms for more efficient participation in the process of adoption of regulations at all levels (amendments to the Law on General Assembly, the Law on State Administration, the Law on Self-Government, the Law on Protector of Citizens, the Law on National Bank and the Law on Referendum and Peoples’ Initiative...)

90 | A P P A R

97.

Implementation of a feasibility study on the organization of legal framework for preventing conflict of interest in public administration. Result: 5.2.1. Enhanced mechanisms for ensuring ethical standards and integrity of the employees in public administration.

MoJ Status: not implemented

Progress made: In 2015 the Ministry of Justice, in cooperation with Anti-Corruption Agency, started implementation of the revision of the Action Plan of the National Strategy for Combating Corruption. Therefore, all activities stipulated by the Action Plan for Chapter 23, which are stipulated at the same time in the Action Plan, continue to be monitored through appropriate activities in Chapter 23. The reason for such solution is avoidance of double reporting of identical activities from two different strategic documents. By measure 2.2.3.4. Of the Action Plan for Chapter 23, implementation of a feasibility study is stipulated on the organization of legal framework for preventing conflict of interest in the work of civil servants.

Problems:

Future steps: Since the deadline for implementing the mentioned activity is the 4th Q of 2016, the implementation of a specific measure will be covered by the Report on the implementation of activities stipulated by the Action Plan for implementing the National Strategy for Combating Corruption of the Ministry of Justice for 2016. After that, drafting the law will follow that will organize prevention of conflicts of interest of civil servants on the basis of the results of the feasibility study, and the deadline for implementation of the specific measure is 2nd Q of 2017.

91 | A P P A R

98.

Preparation and adoption of integrity plans in PA bodies and organizations in accordance with the guidelines and dynamic prescribed by ACAS Result: 5.2.1. Enhanced mechanisms for ensuring ethical standards and integrity of the employees in public administration.

Anti-Corruption Agency (ACAS)

Status: partially implemented (the activity is implemented in accordance with dynamics prescribed by ACAS)

Progress made: Problems: There are no deviations. Although the new Law on Anti-Corruption Agency has not yet been adopted, the Agency will, in accordance with the provisions of the current Law on Anti-Corruption Agency, adopt and publish Guideline for creation of integrity plans, by which it will begin the cycle of development and application of the second generation of integrity plans in public sector in the Republic of Serbia. Adoption of the new Law on Agency will not disrupt this dynamics with regard to the fact that the Guidelines for the creation of integrity plans will, according to the new Law on Agency, will be adopted for the third generation of integrity plans, for the period 2019– 2021.

Future steps: With regard to the fact that the creation of integrity plans has been developing according to the dynamics prescribed by the Anti-Corruption Agency and that the cycle for preparation and application of the second generation of integrity plans will be the period March 2016 - March 2019, the implementation of this activity shall begin in March 2016 In February 2016, the Agency will adopt the Guidelines for creation of integrity plans in which it will specify the deadline for creation and the deadline for implementation of the second generation of the integrity plans. During 2015, the Agency created new integrity plan models and a software which will be used by the PA bodies and organizations during creation of these documents. After the Agency has adopted and published the Guidelines and activated the software, all competent PA bodies and organizations will commence the creation of integrity plans in accordance with the models created by the Agency (deadline: 4th Q of 2016).

92 | A P P A R

99.

Ensuring technical conditions for efficient application of the Law on Protection of Whistleblowers Results: 5.2.2. Enhanced efficiency of the whistleblower protection system (persons who report their suspicions concerning corruption) in public administration

MoJ Status: implemented

Progress made: in the period of first six months - implemented training of 853 judges; created Manual for the application of the Law on Protection of Whistleblowers; media campaign is implemented that aims to inform the public of the novelties introduced in the RS legal system. The precondition for efficient use of new legal provisions and implementation of strategic measures are expertise and knowledge of all entities participating in the law implementation process. In those terms, the Ministry of Justice, in cooperation with USAID, organized a series of training sessions in Belgrade, Kragujevac and Niš, where 853 judges completed the training in first training series only, and in this way leaders of judicial functions were introduced to new legal solution. In addition, the Human Resource Management Service developed a training plan and programme entitled “Whistleblower Protection”, which is a part of the General Continuous Professional Development Programme (the programme area is anti-corruption) that was adopted on 31 March 2015 under the 2015 Rulebook on Establishing the General Continuous Professional Development Programme for Civil Servants from State Authorities and Government Services. In accordance with the adopted programme, the training plan and programme “Whistleblower Protection” was organized on three occasions: 25/8/2015, 13/11/2015, 10/12/2015. The total number of participants is 62, while all civil servants were the target group.

Problems:

Future steps: Regarding the year 2016, it is planned to discuss the topic of whistleblower protection in two one-day training sessions for two target groups: 1. Whistleblower Protection - basic training (target group: all civil servants; objective: informing civil servants about the concept and types of whistle blowing, conditions under which it can be exercised, conditions and procedure of whistleblower protection, and other rights that follow from the Law on Protection of Whistleblowers) 2. Whistleblower Protection – training for authorized persons (target group: authorized persons for acting on reports related to whistle blowing; target: informing the trainees about international standards and practice of the European Court of Human Rights regarding whistleblower protection in terms of right to freedom of expression, and with key terms prescribed by the Law on Protection of Whistleblowers, with the aim of better understanding of the term, meaning of whistle blowing and whistleblower protection).

93 | A P P A R

100.

Preparation, consultations and establishing of Proposals for Amendments to the Law on Protector of Citizens in accordance with the 2014 Conclusion of the General Assembly. Result: 5.3.1. Enhanced legal framework and work conditions of state authorities which perform the external supervision of the administration


Progress made: a Special working group was established and the Draft Law text is in preparation

Problems:

Future steps: The final version of the Action Plan for Chapter 23 determined the 2nd Q of 2016 as the final deadline

101.

Providing facilities solving the placement of the Protector of Citizens (by adopting appropriate Government document) Result: 5.3.1. Enhanced legal framework and work conditions of state authorities which perform the external supervision of the administration

MPALSG/GenSec Status: not implemented


Future steps: Change of the regulations is planned that would more closely arrange the organizational structures for relations with independent state authorities, reporting mechanisms, etc. (2nd Q of 2016)

102.

Providing facilities solving the placement of the Commissioner for Protection of Equality (by adopting appropriate Government document) Result: 5.3.1. Enhanced legal framework and work conditions of state authorities which perform the external supervision of the administration



Future steps: Change of the regulations is planned that would arrange more closely the organizational structures for relations with independent state authorities, reporting mechanism, etc. (2nd Q of 2016)

94 | A P P A R

103.

Providing facilities solving the placement of the NAA (by adopting appropriate Government document) Result: 5.3.1. Enhanced legal framework and work conditions of state authorities which perform the external supervision of the administration




104.

Establishing a mechanism of regular six month reporting to the General Assembly by entities of the audit on conduct in accordance with NAA recommendations. Result: 5.3.1. Enhanced legal framework and work conditions of state authorities which perform the external supervision of the administration




105.

Preparation, consultations and establishing Proposals for Amendments to the Law on Free Access to Information of Public Importance in accordance with the 2014 Conclusion of the General Assembly, through work of a common working group Result: 5.3.1. Enhanced legal framework and work conditions of state authorities which perform the external supervision of the administration


Progress made: a Special working group was established and the Draft Law text is in preparation

Problems:

Future steps: The final version of the Action Plan for Chapter 23 determined the 2nd Q of 2016 as the final deadline

95 | A P P A R

106.

Preparation, consultations and establishing of Proposal for Amendments to the Law on Anti-Corruption Agency with the aim of strengthening control mechanism of the Agency in the process of implementing provisions on the conflict of interest. Result: 5.3.1. Enhanced legal framework and work conditions of state authorities which perform the external supervision of the administration

MoJ Status: not implemented

Progress made: Working Group for preparation of draft for the new Law on Anti-Corruption Agency has been formed by the Decision of the Minister of Justice No 119-00-13/205-05 of 29/1/2015 with the aim of implementing measure 3.1.2.1. which is removed and monitored through Chapter 23, and measure 2.2.1.1. in accordance with the implemented revision of the Action Plan for implementing National Strategy for Combat against Corruption in the Republic of Serbia in the period 2013-2018 (hereinafter referred to as: The Action Plan) Having in mind the intensified work of the working group, and a series of consultative meetings between the Ministry of Justice and the Anti-Corruption Agency during December 2015 and January 2016, the finalization of the draft of the mentioned law and its adoption are expected in the first quarter of 2016.

Problems: Auditing process of the Action Plan has changed the dynamics of implementation of measures, which also influenced the process of creation of the mentioned law text.

Future steps: After the creation of the final text of the Draft Law on Anti-Corruption Agency, public discussion will follow and then the final adoption of the text of the law which (in terms of prevention) with the Financial Investigation Strategy represents the pillar of the Action Plan, Subchapter Combat against Corruption. After that, implementation of other planned measures will follow from the Action Plan for Chapter 23.

96 | A P P A R

107.

Implementation of the functional analysis of the Administrative Inspectorate for determining the necessary structure and number of employees for completing the jobs defined by law. Result: Enhanced capacities and conduct of the Administrative Inspection in a way that ensures efficient control of the legality of BSA work and other entities of the administration and inspection oversight

MPALSG-AI Status: implemented

Progress made: several planned conclusions were made in accordance with the project of the

Norwegian Embassy “Managing Changes-Strengthening MPALSG Capacities”, with the aim of strengthening the capacity of the Ministry including the Administrative Inspection, but also including the analysis of expectations of interested parties by the Ministry, which is the leader of changes in PA that must be implemented both externally (as a coordinator and supervisor of PA reform) and internally (changing its own structure). Identification of business processes was completed and it involved: completing the list of processes with the main elements of the process which include identification of: the participants in the process, owners of the process, measurable process goals, frequency of reporting, content of the report for monitoring the level of objective accomplishment and authors who will create detailed procedure concerning the process implementation manner. The lists of identified processes are an important element in every procedurally-organized systematisation. Within the project, a functional analysis of the Ministry was also conducted together with Administrative Inspection and analysis of resource allocation, functions of the Ministry was determined in accordance with the competence and law regulations. In accordance with the conclusions and recommendations from the project and actual factors and parameters, a reorganization of the Ministry was carried out and a Rulebook was created on internal organization and systematization of job positions in the Ministry of Public Administration and Local Self-Government

Problems: after completed objective and independent conclusions and determined functions of

the MPALSG within the project, conditions, i.e. objective possibility was not created for reorganizing

MPALSG which would fully allow execution of determined functions and needs due to the lack of

staff capacities (Decision on the maximum number of...)

Future steps: In the following period, care will be taken, in accordance with the continuation of the process of PA rightsizing and optimization, of recommendations and findings of the Project and perform reorganization of MPALSG and other bodies within the Ministry in accordance with objective possibilities and parameters.

97 | A P P A R

ANNEX 2: IMPLEMENTATION OF RESULTS – INDICATORS FOR 2015

Overall objective: Indicator (Impact level)

Further improvement of work of Public Administration in accordance with principles of the European Administrative Space and provision of high quality services to citizens and business entities, as well as the creation of public administration which shall significantly contribute to the economic stability and increase of the living standard

Government effectiveness (World Bank) – percentage rank (0-100) BV (2013): 50.72 Achieved value in 2014: 58.17 TV (2018): 53-5510

Specific objective 1: Indicator (Impact level)

Improvement of organizational and functional Public Administration subsystems The extent to which the overall structure of ministries and other bodies subordinated to central government is rational and coherent (PAP 4) BV (2014): 2 TV (2017): 3 Transparency of Government policy making (PAP 2) BV: 3.6 (Report 2014-2015) TV: 3.8 (Report 2017-2018)

Number Result Institution

responsible for gathering data

Indicators Baseline Value

(2014) Indicator for 2015 Target Value (2017)

1.1. Measure

Implementation of organizational and functional restructuring of Public Administration until 2017 of factually based measures for rightsizing of Public Administration in terms of number and suitability of institutions, number of employees, work processes and organizational structures with the creation of strong analytical basis for these processes

10 The report for this indicator is published in late September each year containing processed data for the previous year.

98 | A P P A R

1.1.1.

Improved organizational forms, their mutual relations and rationalized number of organizations and employees in the Public Administration

MPALSG

Number of bodies reporting to the Government, to the Prime Minister or to the Parliament (PAP 4)

46 . 43

Number of organizations which have been discontinued, merged or whose organizational form has been changed

0 6

Depending on the analysis of results and functions that overlap

(II phase of FR)

1.1.2.

Conditions created for in-depth rightsizing of selected organizational subsystems of Public Administration (implementation of functional review - FR)

MPALSG

Percentage of recommendations from implemented Functional Review adopted by the Council for PAR

0%

TV: 20%

Achieved value: Not achieved (0%) FR have not been implemented

yet

80%

1.1.3. Realized in-depth rightsizing of certain organizational subsystems of PA

MPALSG

Percentage of implemented recommendations from the report on implemented FR

0% TV: 0% 40%

1.1.4 Created support of professional and general public for the process of rightsizing of Public Administration

MPALSG

The percentage of the public support to the process of Public Administration optimisation BV: 0% TV: >50% (for measuring this indicator the public opinion survey needs to be conducted)

0% - >50%

99 | A P P A R

1.1.5.

Established framework for management of performance in PA connecting all existing elements of performance management and ensuring their upgrading

MPALSG

The degree to which the plan for implementation of recommendations provides a coherent connection of existing elements of effectiveness management systems and their upgrading

BV: no - TV: yes

1.1.6

Established electronic registers of Public Administration bodies and organizations and employees in the system of Public Administration

MPALSG-EUD

Percentage of the number of employees whose data is kept in the register

BV (2014): 0%

Due to the fact that the electronic register has not been set up,

nor legally prescribed, the baseline value is

set at 0%.

- 100%

Percentage of number of PA bodies and organisations which data are in the register

BV (2014): 0%

Due to the fact that the electronic register has not been set up,

nor legally prescribed, the baseline value is

set at 0%.

- 100%

1.2. Measure Improvement of decentralization and deconcentration tasks of Public Administration by improvement of analytical and strategic framework by the end of 2017

1.2.1

Determined framework for political decentralisation in the Republic of Serbia

MPALSG

Action plan for implementation of the Strategy of decentralisation adopted by the Government

BV: no - TV: yes

100 | A P P A R

1.2.2. Improved framework for provision of sustainability of public finances at local level

MPALSG/SCTM

Number of LSU to which the support was initiated through the grant scheme and municipal packages for property management

BV (2014): 37 The Exchange 5 project will probably not start before January 2016, which is why the GS and support packages will not begin before end-2016 or early 2017

TV: 37

Achieved value: 0 because the Project has not started yet

97

1.3. Measure

Improvement of the system for management of public policies of the Government (planning, analysis, creation, adoption, monitoring and evaluation and coordination) by establishment of legal and institutional framework for integrated strategic management until the end of 2017 and adoption of medium-term SAB work plans aligned with strategic priorities of the Government and with the program budget

1.3.1.

Established single system for public policies management which ensures the preparation of public policies documents which comply with the adopted standards

RSPP

The share of the number of proposals of strategic documents agreed with the adopted methodologies in the total number of proposed strategic documents submitted to NSPP for opinion, on annual basis

0%

TV: 20%

Achieved value: not achieved (0%)

30%

The share of requests for opinions on proposals of strategic documents submitted to the NSPP in the total number of proposals of strategic documents, on annual basis

95%

TV: 100%

Achieved value: no data submitted

100%

101 | A P P A R

1.3.2.

Medium term and annual planning in state administration bodies is based on Government priorities and the program budget and the implementation is being regularly monitored

RSPP

The percentage of annual implementation backlog of planned activities in the Government annual work plan (PAP2)

49%

Achieved value according to RSPP methodology: 34%

(Out of the total number of Government acts and

regulations to be passed by state

administration bodies planned in the 2015

Government Work Plan (2061), 705 acts and

regulations have been passed, while 1356 acts

and regulations have not been passed)

Government General Secretariat will set the target values by end-2015 based on the

baseline value identified by SIGMA

OECD

Completeness of financial estimates in sector strategies (PAP2)

1

.

RSPP will set the target values based on the

baseline value identified by SIGMA OECD

.

RSPP will set the target values based on the

baseline value identified by SIGMA

OECD

The extent to which reporting provides information on the outcomes achieved (PAP2)

3

RSPP will set the target

values based on the

baseline value identified

by SIGMA OECD

RSPP will set the target

values based on the

baseline value

identified by SIGMA

OECD

102 | A P P A R

1.3.3. Increased transparency of public policies management system

GenSec

The share of number of draft laws for which there was a public hearing during the process of preparation in the total number of draft laws adopted on annual basis

BV (2014): 31% Note:

In 2014, Government passed 181 bills. This number includes bills on ratification of international agreements. In the same year, 56 public hearings for draft laws were approved which means that the percentage of draft laws for which there was a public hearing in 2014 was 31%.

TV: 50%

Achieved value: 39%

(Government passed

182 bills on ratification

of international

agreements. The

number of draft laws for

which there was a

public hearing during

the process of

preparation was 48 or

39%. It must be noted

that the said

percentage is

calculated after the

number of bills on

ratification of

international

agreements, for which

the public hearing is not

held, is deducted from

the total number of

laws).

50%

1.4. Measure Establishment of strong coordination mechanisms which shall enable the harmonious development and operation of electronic government, as well as the completion of the legal framework and procedures for development of electronic government

1.4.1

Provided coordinated management of the electronic management development with implementation and completion of institutional and legal framework

MPALSG-EUD

Number of meetings of the Working Group for electronic government with subgroups at annual level

0

TV: 2

Achieved value: 0 (Working Group is not

set up)

4

TV: 3

103 | A P P A R

Number of meetings of subgroups of the Working Group for electronic government at annual level

0

Achieved value: 0 (Working Group is not

set up) 9

1.4.2.

Established interoperable communication functioning between different information system services of SAB and LSU based on use of established basic electronic administration registers

MPALSG-EUD

Number of state authorities who apply the standards of interoperability

4 TV: 5

Achieved value: 5 50

The number of state administration bodies and local self-government units which use the service path

5 TV: 10

Achieved value:10 50

Number of basic registers of electronic government connected with other information systems of bodies

BV (2014): 1 (Business Registers Agency – BRA Registry)

TV: 2

Achieved value: Not achieved because the

citizens’ registries have not been connected to

the rest of the eGovernment yet. It is

expected that this indicator will be

achieved by end of Q1 2016, when the service “Welcome to the world, baby”, which relies on

the citizens’ birth registries, becomes

operational.

4

1.4.3. New electronic services which use basic registers are established and are being widely promoted

MPALSG-EUD

The percentage of citizens who are satisfied with the services and interaction with the public administration through e- Government Portal

10% TV: 15%

Achieved value:15% 30%

104 | A P P A R

Average time needed to acquire a personal identification document after submitting the application (PAP 5)

EUD/АP 15 statutory days

SIGMA, ID: 4.8

TV: EUD: 10 actual days

Achieved value, EUD: 10 actual days

EUD: 5 actual days SIGMA: 4.8

Number of services provided through the e- Government Portal (one-stop-shop system) (PAP 5)

EUD: 7

SIGMA: 312

ЦВ, ДЕУ: 10

Achieved value, EUD: 10, but for now to a

limited extent

20

105 | A P P A R

Specific objective 2: Indicator (impact level)

Establishing a coordinated public-service system based on merits and promotion of human resource management

Extent to which the policy and legal framework for professional and coherent public service is established and implemented (PAP 3) BV (2014): 4 TV (2017): 4 Extent to which the institutional set-up enables consistent HRM practices across the public service (PAP 3) BV (2014): 2 TV (2017): 3 Extent to which the remuneration system of public servants is fair and transparent and applied in practice (PAP 3) BV (2014): 4 TV (2017): 5





2.1. Measure Establishment of coordinated system of work relations and wages in public administration on the basis of transparency and fairness principles

2.1.1.

Coordinated labour-legal status of employees in all areas of public administration, with the goal of strengthening of implementation of principles of de-politicisation and professionalization, i.e. establishment of the system based on merits (merit system)

MPALSG

The share of the number of employees in PA system to which provisions on obligation of implementation of competition refer to in relation to the total number of employees in PA

approximately 50% - 70%

106 | A P P A R

2.1.2.

Established transparent and fair system of wages in the public administration

MPALSG

The share of employees in public administration to which the new Law on Wages is applied in the total number of public administration employees (around 500,000 employees)

0% - 70%

2.2. Measure Improvement of the function of human resource management in state administration until the end of 2017 with a strategic approach, with introduction of new tools and strengthening of the HRM capacities

2.2.1.

Elementary improved basic elements of HRM for prevention of further politisation of employment, attrition of the quality of personnel and in order to attract quality candidates for work in the state administration

HRMS

The percentage of increase in the average number of external candidates in competitions for persons on position

7 candidates on average

TV: 20%

Achieved value: 5 candidates on average

Percentage of assessments 4 and 5 on annual level of assessment of civil servants

87%

Due to changes in legislation, TV will not be set for 2015 and

2016

25%

2.2.2.

Consolidated institutional frame for development of HRM function in the state administration

MPALSG

The extent to which HRM institutional frame provides clear lines of responsibility between the function of creation and implementation of HRM policy

no - yes (2016)

2.2.3.

Established policy frame of strategic HRM and developed improved instruments for strategic HRM in the state administration

MPALSG

Annual turnover of civil servants at the level of the central administration (PAP 3)

3.56%

Target values will be set following adoption

of the Law on Rightsizing and relevant by-laws

107 | A P P A R

Percentage of vacant positions filled by external competition in the civil service at the level of central administration (PAP 3)

SIGMA TV: 82,9% Achieved values HRMS: 69.7%

87%

2.2.4.

Improved capacities for strategic human resource management

HRMS

Percentage of managers and employees in HRM units in SAB which confirm that they use the new knowledge and instruments

0% - 80%

2.3. Measure Development and coordination of basic human resources management functions for a broader system of public administration by the end of 2017 of the sustainable system for professional development of the employees in public administration

2.3.1.

Established basis of the system for general professional development of employees in bodies and organizations of public administration

MPALSG

The percentage of fulfilment of the phase development plan of the Central Institution

0% TV: 30%

Achieved value: 0% 100%

The extent to which the training system of public servants is in place and applied in practice (PAP3)

3 - 4

2.3.2.

Established legal framework for development of Human Resource Management function in AP and LSGU

MPALSG

Measure in which the normative framework for development of the function of HRM in AP and LSGU is completed

0 - 1

Number of the held regional seminars 0

TV: 5

Achieved value: 0 0

2.3.3.

Strengthened capacities of employees in LSGU for Human Resource Management

MPALSG

Number of LSGU included in the network, number of meetings and consultations held with the network

0 TV: 100 LSGU, 1 meeting

Achieved value: 0 120 LSGU 2 meetings

108 | A P P A R

Number of LSGU that adopted the necessary documents and developed appropriate procedures in accordance with the determined support packages

- TV: 0 20

2.3.4.

Established coordinated, durable and sustainable system of professional development of LSGU employees, which shall contribute to increased levels of knowledge and skills of employees necessary for achievement of fundamental postulates of modern local self-government

MPALSG

Council for Professional Development formed in accordance with the Act governing the composition and activities conducted

no - yes (2016)

Number of implemented priority general training programs for employees in LSGU

0 - 170 implemented

trainings attended by at least 85 LSGU

109 | A P P A R


Improvement of public finances and procurement management MTBF strength index (PAP 6) BV: 2 TV: 3

Number

Result Institution




3.1. Measure Preparation of the Public Finances Reform Program

3.1.1. Adopted Public Finances Reform Program

MoF

Total percentage of covered findings/recommendations from the preliminary report on Assessment of public revenues and financial responsibilities in the Public finance reform program

BV: will be set in the preliminary PEFA report

TV: 0 Achieved value: 92% (PFM includes more activities that PEFA

recomendations given)

100%

3.2. Measure Improvement of Budget Planning and Preparation Process

3.2.1.

Operationally and methodologically improved process of planning and preparation of the multi-annual budget program at all levels of government

MoF

Percentage of budget users who started using the program budget

13% TV:100%

Achieved value:100% 100%

Percentage of compliance of program structures of budget users with the Guidelines for the preparation of the program budget

0% TV: 40%

Achieved value: 61% 70%

110 | A P P A R

SCTM

Percentage of LSGU with ready budget for 2017 in accordance with the methodology for implementation of program budget

0%

TV: 40%

Achieved value: 42.06% i.e. 61 towns

and municipalities out of the total of 145

If we include 24 city municipalities fully

operational in 2015 (17 within the City of

Belgrade, 5 within the City of Niš, as well as Kostolac (Požarevac) and Vranjska Banja

(Vranje), then the figure is somewhat higher – 45.56% or 77 towns and municipalities

(including city municipalities without

the LSGU status) out of total 169.

60%

111 | A P P A R

3.2.2.

Introduced and applied planning and implementation of capital projects on priority basis and increased predictability in implementation

MoF

The percentage of revenues incurred based on capital projects approved in accordance with the methodology for assessment of capital projects

0%

TV: 0%

Achieved value: it should remain 0% for

2015 since the methodology for

assessment of capital projects has not been

adopted yet. Preparation of this

methodology will begin only after the adoption of the Decree on the Content, Manner of

Preparation and Assessment, as well as

Monitoring, Implementation and Reporting of Capital

Projects (deadline is 29 February 2016)

90%

3.3. Measure Improvement of the Financial Management System and Control of Use of Public Resources and Internal Audit

3.3.1. Adopted medium-term framework for the implementation of internal financial control in the public sector

MoF

Adopted Strategy for the Development of internal financial control in the public sector for the period 2015 - 2019 until the end of 1 quarter 2015

BV (2014): no

(previous PIFC Strategy of the

Republic of Serbia 2009 – 2014)

TV: yes

Achieved value: no

112 | A P P A R

3.3.2

Improved financial management and control system (FMC)

MoF

Percentage of public resources users at the central level in which managers of basic/ special organizational units and administrations are on monthly basis reported / informed about the financial commitments and expenditure of funds in the corresponding part of the institution budget

0

MoF: This indicator is not adjusted to activities. It is

operationally not possible to monitor the implementation of this

indicator.

100%

Total number of irregularities reported to the budget inspection in relation to the initial value

Framework for irregularities management by users of public resources will be defined by end-2016 in the Rulebook on Financial Management and Control, and the relevant indicators will be set NOTE: Deadline for setting indicators (2015) is not in line with the deadline for adoption of regulations that govern irregularities management ( Q4 2016)

3.3.3. Improved capacities and functionality of the internal audit system

MoF

Share of public administration organizations meeting national legal requirements for establishing and minimum staffing of internal audit units. (PAP 6)

SIGMA: 36%

MoF: 64% TV: 70% 80%

Share of organizations with annual internal audit plans conforming to national legal requirements (PAP 6)

Sigma: Not available

MoF: 64% TV: 70% 80%

3.4. Measure Functional improvement of budget inspection work

113 | A P P A R

3.4.1. Provided capacities and functionality of the budget inspection

MoF

Number of complaints on which the budget inspection acted in relation to the initial value

20

TV: 22

Achieved value: 86 complaints acted upon

30

3.5. Measure Improvement of the public procurement system

3.5.1. Operationally and methodologically improved public procurement system

DPP

Number of visits to the portal in relation to the initial value

2,028,919

TV: 5% - 10% more

Achieved value: 2,343,503 (15%)

5% -10% more

Number of certified officials for public procurement in relation to the initial value

140

Certification in accordance with new

legislation was launched in October 2014, pursuant to old legislation 1,810 of

public servants were certified from

December 2010 to March 2013. From

March 2013 to October 2014 no certification was

performed.

TV: 500%

Achieved value: 1098 (784%)

(Given that certification in accordance with new

legislation was launched in October 2014 the target value set for 2015 is high,

which is also indicated in the passport of indicators. A slight

growth trend is expected in the following years.)

10%

114 | A P P A R


Increase of legal security and improvement of the business environment and the quality of public services provision

Extent to which citizen-oriented policy for service delivery is in place and applied. (PAP 5) BV (2014): 4 TV (2017): 5 Extent to which the legal framework for good administration is in place and applied. (PAP 5) BV (2014): 2 TV (2017): 3 Extent to which policy development process makes the best use of analytical tools. (PAP 2) BV (2014): 3 TV (2017): 4



Indicators Baseline Value (2014) Indicator for 2015 Target Value (2017)

4.1. Measure Improvement of the legislative process as a part of a wider system of Government public policies management

4.1.1.

Improved and transparent process of development and implementation of regulations in a manner that ensures inter-sector coordination, participation of interested public, and assessment of potential effects, implementation monitoring, evaluation and reporting on the regulation implementation

RSPP

Share of draft laws harmonized with the adopted methodology for regulation impact analysis in the total number of draft laws submitted for opinion to NSPP for which it is necessary to perform the effects analysis, on annual level

53% TV: 55%

Achieved value:66.9% 65%

115 | A P P A R

The share of the number of proposals of strategic documents harmonized with the adopted methodology for analysis of effects of documents of policy policies in the total number of proposals of strategic documents submitted for the opinion to NSPP, on annual level

0% Baseline value for this indicator is 0% due to

the fact that the process of preparation of the

Methodology for Public Policy Management,

Analysis of Effects and Content of Policy

Documents is under way.

TV: 0% 30%

4.2. Measure Improvement of administrative procedures and provision of conduct of state administration bodies and bodies and organizations of public administration in deciding on rights, obligations and legal interests of citizens and other entities in accordance with principles of good governance

4.2.1.

Improved and harmonized the legal framework in administrative conduct of state or public administration bodies at all levels of government

MPALSG

Extent to which the legal framework for good administration is in place and applied (PAP 5)

2 3

4.2.2. Increased use of modern information technologies in administrative procedure management

MPALSG-EUD

The percentage of the state administration bodies in which conditions for electronic communication with clients in administrative procedure are provided

Number is monitored and not the percentage

1 (Tax Administration)

TV: 3

Achieved value: 3 25

4.2.3.

Provided organizational and personnel prerequisites for implementation of the Law on General Administrative Procedure

MPALSG-AI

Percentage of implementation of training programs for administrative inspectors for supervision over the implementation of LAP

0% - 50%

MPALSG

Percentage of implementation of the program for professional development for implementation of LAP

0% - 100%

116 | A P P A R

4.2.4.

Public administration applies the principles of good governance in its work, and in particular provides a response to the needs of citizens in planning and implementation of public policies

MPALSG

Number of state administration bodies which have established procedures for solving the complaints of citizens in accordance with the recommendation of the Ombudsman

Precondition is the survey that was not

conducted

Data for this indicator will be collected through an electronic survey conducted via the Directorate for eGovernment and sent to all state administration bodies and Government services containing a question if they established internal procedure for solving citizens’ complaints and what does such a procedure imply (existence of a contact person for solving complaints of citizens in accordance with the recommendation of the Ombudsman, entire system established for solving complaints of citizens in accordance with the recommendation of the Ombudsman, etc.)

Number of civil servants who successfully passed the program of professional development dealing with the issues of the good administration principle

NOTE: The assumption for this indicator was the existence of the Good Governance Code passed by the National Assembly at the proposal of the Ombudsman, based on which the programs for professional training would be developed covering the issues contained in the Code.

Until the preparation of this document the Code was not adopted which is why this indicator will not be monitored

4.3. Measure Reform of the inspection supervision and ensuring better public interest protection, with reducing administrative costs of inspection supervision and increase of legal security of subjects of the inspection supervision

4.3.1. Established a new single legal framework for inspection supervision, presented to the public

MPALSG

Number of informed and trained participants

0

TV: 800

Achieved value: Number of informed participants in 2015: 1296 (162%) at 17 presentations regarding the Law on Inspection Supervision

1500

117 | A P P A R

4.3.2 Provided coordination of the work of all inspections

MPALSG

Number of inspection services present in the Coordination Commission

0

TV:12

Achieved value: 33 In the Coordination Committee (Board for Coordination of Inspection Supervision, Council of the Coordination Committee and working groups and expert teams of the Coordination Committee all 33 republic inspections are involved (according to the official data, there are 36 inspections in 12 ministries. Inspectorate of Defence is excluded from the enforcement of the Law on Inspection Supervision, and 2 inspections have not started working: Inspection for Nuclear Safety and Radioactive Waste Management and Inspection of the Directorate for Biomedicine)

36

118 | A P P A R

Number of inspection services using the system of a single inspection control

0 TV: 0 13

4.3.3. Increased capacities of inspection services for implementation of the new inspection supervision system

MPALSG

Number of Inspectors who passed the certification exam

0

TV: 0

Full enforcement of the Law on Inspection Supervision, including provisions related to the exam for inspectors that will become effective on 29 April 2016. Consequently the exam for inspectors was not organised in 2015.

1700

4.4. Measure Introduction and promotion of mechanisms which ensure the public service quality

4.4.1

Conditions created for the establishment of the system for public service quality management in public administration

MPALSG

Extent to which the recommendations for creation of the public service quality management system reflect the Public Administration Principles

0

-

Indicator is measured once in every two

years

40%

119 | A P P A R


Increase of citizen participation, transparency, improvement of ethical standards11 and responsibilities in performance of public administration activities

Extent to which the integrity and anti-corruption system of the public service is in place and applied in practice. (PAP 3) BV (2014): 3 TV (2017): 4 Transparency of Government policy making (PAP 2) BV: 3.6 (Report 2014-2015) TV: 3.8 (Report 2017-2018) Extent to which the mechanisms are in place to provide effective checks and balances, and controls over public organizations. (PAP 4) BV (2014): 4 TV (2017): 4



Indicators Baseline Value (2014) Indicator for 2015 Target Value (2017)

5.1. Measure

Improvement of conditions for participation of public in work of public administration with increase of availability of information on work of public administration and public finances

11National Anti-Corruption Strategy in the Republic of Serbia for the period from 2013 to 2018 uses the concept of integrity, but it refers to the need to adopt codes of ethics. The two terms are considered to be complementary in the public administration reform.

120 | A P P A R

5.1.1.

All information on work of public administration (number of employees, finances, act.) are available on the Internet and presented in standardized form

MPALSG-EUD

Percentage increase in the number of SAB and LSGU which have harmonized their internet presentations with the Guidelines for development of web presentations

BV: Reports on the assessments of harmonization of web presentations for 2014 Average assessments: State administration bodies – 56.6%; Bodies of territory autonomy – 45.5%; ULSG – 43.54%

TV: For each year 10% harmonisation growth is envisaged Achieved value: for 2015 it is 144.4 out of maximum 300 points, while for 2014 the average score was 169.9, which means that the average level of achievement for 2015 is 48.13%, which is an 8.47% reduction compared to 2014 when the average level was 56.6%.

For each year 10% harmonisation growth is envisaged

MPALSG

Reduction of the number of complaints submitted to the Commissioner for Information of Public Importance

NOTE: this indicator should be reconsidered due to the fact that the complaints are generally not submitted to the Commissioner because of the lack of information on the internet, but because of availability of information of public interest, administrative silence, etc. In addition, based on the progression over the last three years, there is an upward instead of a downward trend of complaints (in 2012, the number of submitted complaints was 2,330, in 2013, it was 3,300, in 2014, it reached 3,929, and in 2015, it stood at 3,821. In the previous period, there was a small number of complaints on the grounds that Work Information Booklets are not published, according to data obtained from Commissioner: 5 in 2011, 2 in 2012, 1 in 2013, 2 in 2014 and in 2015, 4 filed by citizens (out of the total of 6 complaints) in 2015.

5.1.2.

CSO and citizens involved in the process of creation, implementation and monitoring of public policies at national and local level

MPALSG

Extent to which public consultation is used in developing policies and legislation(PAP 2)

3 - 4

5.2. Measure Strengthening of integrity and ethical standards of employees in public administration and reducing corruption through strengthening of prevention mechanisms

121 | A P P A R

5.2.1.

Improved mechanisms for ensuring of ethical standards and integrity of employees in public administration

MPALSG

Number of public servants who have been criminally convicted of corruption crimes (PAP3)

not available - -

HRMS

Number of disciplinary proceedings initiated in connection with the violation of ethical and integrity standards in SAB

86 TV: approximately 70

Achieved value:79 Approximately 70

ACAS

Percentage of PA bodies and organizations which adopted integrity plans in accordance with the dynamics and guidelines prescribed by ACAS

48,77%

- Indicator is measured

every 3 years The law on Anti-

Corruption Agency is being prepared.

Following its adoption, new guidelines for the integrity plans will be developed which will set the timelines for the preparation of

models and integrity plans. The next data will be available in

2017.

60%

122 | A P P A R

5.2.2.

Improved effectiveness of the system for protection of whistle-blowers (people who report suspicions on corruption) in public administration

MoJ

Number of reports of the ministry responsible for judicial on proceedings of courts on cases related to the whistle-blowers

0

Frequency of data collection: once every 2 years, starting date: 05.06.2015 since this

is when the implementation of the Law on Protection of

Whistle-blowers begins and the

relevant statistics data can be obtained only

after a two-year period of application.

1

5.3. Мера Strengthening of mechanisms of external and internal public administration control

5.3.1. Improved legal framework and work conditions in state bodies performing external administration control

GenSec

Number of regular six-months reports submitted to the National Assembly

5 5 5

123 | A P P A R

5.3.2

Improved capacities and acting of Administrative Inspection in the manner ensuring effective control of legality of operations of public administration bodies and other administrative and inspection control entities

MPALSG-AI

Percentage of increase in the number of controlled entities

1,400 inspection supervisions and 1,230

complaints

TV: 10% more

Achieved value: 1,183 of inspection

supervisions and 1,561 complaints

-supervision rate is lower (15.5%)

compared to 2014 due to the fact that in 2014 there were much more

unscheduled inspection

supervisions: over the updating of the Single

Voters’ Register for the parliamentary

elections and over the application of the Law

on Removal of Consequences of

Floods in the Republic of Serbia

-Number of complaints in 2015 rose by 27% compared to 2014

-Compared to the previous period, in

2015, the number of staff in Administrative

Inspectorate was reduced by 3 administrative

inspectors

10%

2015 Annual Report on the implementation of the Action Plan of ...

Documents

Transcript of 2015 Annual Report on the implementation of the Action Plan of ...