civil service training system in montenegro
TRANSCRIPT
THE REPUBLIC OF MONTENEGROThe Government of the Republic of MontenegroThe Human Resources Management Authority
Civil Service Training System in Montenegro
Podgorica, January 2006
CIVIL SERVICE TRAINING SYSTEM IN MONTENEGRO
Publisher: HUMANRESOURCESMANAGEMENTAUTHORITY
Authors: Doc.Dr.SlobodanDujić,Dr.GozdanaMiglič, mrRadojeCerović,M.A. JadrankaVojinović,M.A., NevenkaPavličić,Spec.ClinicalPsychology
Editor: Doc.Dr.SlobodanDujić
Editorial board: SvetlanaVuković,JadrankaĐurković,
Technical editing: IndiraVujović
Prepress: StudioMOUSE
Printed by: ObodCetinje
Circulation: 500copies
Podgorica, January 2006
This publication has been supported by the project “Support to Public Administration Reform – Central Government/ PARiM-2”, an EU-fun-ded project managed by the European Agency for Reconstruction.
CIP-KatalogizacijaupublikacijiCentralnanarodnabibliotekaCrneGore,Cetinje
.......................(........)SISTEMOSPOSOBLJAVANJAIUSAVRŠAVANJADRŽAVNIHSLUŽBENIKAINAMJEŠTENIKACRNEGORE(Doc.drSlobodanDujić,urednikDoc.drSlo-bodanDujić).-Podgorica:Upravazakadrove,2006(Cetinje:Obod).- ....., ...str.:,tabele,24cm.
Nasl.str.prištampanogprevoda:CivilServiceTrainingSysteminMontenegro–/editorSlobodanDujić:translatedbyIndiraVujovićetal.,-Izvornitekstiprevodštampanisuumeđusobnoobrnutimsmjerovima.–Tiraž500.–Rezime:Resume
a)Sistemosposobljavanjaiusavršavanja-kadrovi–uprava-CrnaGora–Komentar-.................COBISS.CG–ID....................
�PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
TABLEOFCONTENTS
INTRODUCTORY BY THE EDITOR...................................................9CIVIL SERVICE TRAINING SYSTEM IN MONTENEGRO.........1�1. INTRODUCTION............................................................................152. WHY IS THE ESTABLISHMENT OF A PERMANENT
CIVIL SERVICE TRAINING SYSTEM NECESSARY AND WHICH MODEL IS MOST APPROPRIATE FOR MONTENEGRO?....................................................................152.1.Introduction.................................................................................152.2.Whyisadditionalfunctionaltrainingandprofessional
developmentofcivilservantsnecessary?................................202.�.Typicali.e.“model”approachestocivilservicetrainingin
somedevelopedEuropeancountries........................................222.4.Elementsconstitutingthecivilservicetrainingsystem.........242.5.Thecurrentsituationinthefieldofcivilservice
traininginMontenegro..............................................................�2Legal framework...........................................................................��The institution..............................................................................��The strategy...................................................................................��The advisory body.......................................................................�4The financing system....................................................................�4Conclusion....................................................................................�6
2.6.WhichelementsaretobeparticularlyemphasizedintheLawonCivilServantsandStateEmployeeswithregardtothisarea?............................................................�7
3. NEEDS ANALYSIS FOR FUNCTIONAL TRAINING OF CIVIL SERVANTS AND STATE EMPLOYEES
(2003/2004 FACTUAL ANALYSIS)..............................................41 �.1.Introduction................................................................................41
�.2.EducationalstructureofpersonnelwithinauthoritiesincludedintheTNA...................................................................42
�.�.TrainingCurriculum.................................................................4��.4.Extensionofthetrainees’internshipperiod..........................44
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�.5.Additionalqualificationofprofessionals...............................44�.6.Whichtrainingareasandlanguages
arethemostnecessary?..............................................................45�.7.Resourcesallocatedfortraininganddevelopment
ofcivilservants............................................................................51�.8.Permanenttraininginstitutions...............................................52�.9.Thecurrentcivilservicetrainingsystem................................54�.10.Needsassessmentforcivilservicetraining...........................55�.11.Evaluationofeffectivenessofadditionaltraining
ofcivilservants...........................................................................56�.12.Conclusions................................................................................59
4. ANALYSIS OF CURRENT LEGISLATION GOVERNING AFFAIRS OF STATE AUTHORITIES (BASIS FOR PREPARATION OF THE DRAFT CATALOGUE OF TRAINING PROGRAMMES)...................................................6�4.1.Thesphereofstateadministration..........................................67
The Law on State Administration...............................................67The Law on Civil Servants..........................................................69The Law on Civil Servants and State Employees.......................71The Law on Salaries of Civil Servants and State Employees....76Regulation on Office Work in State Administration Authorities....................................................................................78Regulation on Names of Groups of Tasks and Principles for Internal Organization and Systematization of State Administration Authorities, Official Titles, Professions and Promotion of Civil Servants........................................................79Regulation on Recognitions of Civil Servants in State Administration Authorities.........................................................80Regulation on the Government of the Republic Montenegro ........81Regulation on the Organization and Method of Work of State Administration.................................................82Rules of Procedure of the Parliament of the Republic of Montenegro...............................................................84Rules of Procedure of the Government of the Republic of Montenegro...............................................................85
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Rule Book on the Principles and Procedure of Completion and Assessment of Civil Servants’ Probationary Work ............ 87Rules Concerning the Acting of State Administration Authorities toward Citizens ...................................................... 87Rule Book on Training of Trainees, Professional Exam and Additional Training of Civil Servants ....................................... 88Instruction on the Uniform Principle for Internal Organization and Systematization of State ............................. 90 Administration Authorities ....................................................... 90
4.2.Generaltasksandprocedurallegislation................................9�The Law on General Administrative Procedure ...................... 9�The Law on Administrative Dispute ......................................... 9�The Law on Inspection Control ................................................. 94The Law on the Budget of the Republic of Montenegro ........... 94The Law on the Constitutional Court....................................... 96The Law on the Protector of Human Rights and Freedoms ..... 96Instruction on the Work of the State Treasury ......................... 97
4.�.Classificationofhorizontaltasksintomaingroups..............98Systemic-legal tasks of state authorities and management in state administration.........................................98Systemic-legal issues.....................................................................98Management in state administration.........................................99Preparation of materials in state administration....................100Normative activity and legislative procedure..........................101Administrative procedure and control mechanisms within state administration.......................................................101Human resources management in state authorities................102International Cooperation and the so-called “European Affairs” ................................................................... 104Financial and budgetary aspects of the operation of state administration...............................................................105General and related tasks within state administration...........106IT in state administration.........................................................106Office administration.................................................................107Data protection and data security............................................108Administrative statistics............................................................108
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Tasks of Promotion and Development of the State Administration ........................................................................ 109Public relations...........................................................................109Official language at the workplace...........................................109
4.4.Conclusions...............................................................................110
5. COMPLEMENTARY TRAINING NEEDS ASSESSMENT FOR PERSONNEL IN STATE ADMINISTRATION�
(FACTUAL MATERIAL COLLECTED IN 2005)....................115
6. ANALYSIS OF FACTUAL MATERIAL COLLECTED DURING 2003 -2005.....................................................................1�16.1.Analysisoffactualmaterial«EducationandTrainingin
CentralAdministration»200�/2004.......................................1�26.2.Complementarytrainingneedsanalysisfortrainingof
personnelinstateadministrationauthorities(2005inclusive).........................................................................141
7. CATALOGUE OF SEMINARS FOR TRAINING OF CIVIL SERVANTS AND STATE EMPLOYEES THE CIVIL SERVICE TRAINING PROGRAMME (BASED ON THE CONDUCTED ANALYSES)......................15�Programmecontents........................................................................1567.1.Publicadministrationandnoveltiesinthesystemof
functioningofstateauthorities...............................................160Basic concepts and principles in the field of constitutional and administrative legislation in Montenegro.........................160General administrative procedure............................................161Work and communication between authorities and parties in administrative procedure .................................162First instance and second instance deciding upon appeal .....16�Enforcement of administrative acts..........................................16�Judicial control of legality of administrative decisions - conducting an administrative dispute .....................................164
1 ThisanalysiswasconductedbytheHumanResourcesManagementAuthorityduring2005.
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Inspection control procedure and rights and obligations of controlled entities.......................................................................166The new civil service system......................................................166Entering service in state administration authorities...............166Performance appraisal of personnel in state administration...................................................................167The Law on the Protector of Human Rights and Freedoms.............................................................................168Civil Service Code of Ethics as an element of modern public management ...................................................................168Execution of comparative analyses of international legislation ................................................................................. 169Nomotechnique in the process of drafting laws and other legal acts ........................................................................ 169
7.2.Managementinstateadministrationauthorities..................170MANAGEMENT IN STATE ADMINISTRATION ...............170Strategic planning of work in state administration authorities...................................................................................170Planning of training of state administration personnel..........171Negotiation and negotiating skills ...........................................172Management of organizational units in the administration....172HUMAN RESOURCES MANAGEMENT IN STATE AUTHORITIES.......................................................17�Human resources management and development..................17�Performance of the hrm function and conducting hrm policy in the state administration ............................................... 174Central personnel record...........................................................175Internal labour market record..................................................175
7.�.Draftingofprojectproposalsinstateadministration..........176Drafting of project proposals in state administration.............176Planning of financial requirements for the realization of projects....................................................................................177Project management in state administration..........................177
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7.4.Financialandbudgetaryaspectsoftheoperationofstateadministration...........................................................................178Financial - accounting affairs in state administration authorities ................................................................................ 178Public finances system and the state budget ........................... 179The state budget and its execution .......................................... 179
7.5.Generalandrelatedtasksofstateadministrationauthorities..................................................................................180Office management ................................................................. 180Public relations ........................................................................ 181The purpose of the information system in state administration - e-governance ................................................ 182
7.6.Communicationinstateadministration..............................18�Resolution of conflict situations ............................................. 18�Communication with clients/parties ...................................... 18�Official communication and protocol for technical secretaries ................................................................................. 184
7.7.Internationalcooperationand“Europeanaffairs”...............185The European Union .............................................................. 185The legal system and legal acts of the European Union ......... 186Institutions and method of decision-making of the European Union ........................................................... 186Preparation for accession of Montenegro to the European Union ...................................................................... 187Management of resources obtained through international technical support ..................................................................... 188
7.8.Officiallanguageattheworkplace.........................................188
7.9.Foreignlanguages......................................................................188
8. ANNEX......................................................................................19�QUESTIONNAIRESFOREXECUTIONOFTHETNA...........19�
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IntroductorybytheEditor
INTRODUCTORY BY THE EDITOR
Trainingofcivilservantsandstateemployeesrepresentsmaybethemostimportantelement inthepublicadministrationreformprocess.Theadministrativesystemofastatecannotfunctionproperlyandlawfullywithouttrainedcivilservantsandstateemployees,thustrainingisthemostimportantfunctionalelementintheprocessofimplementationofnewadministrativelegislation,andonecansayoftheentirereformaswell.
FollowingtheadoptionoftheLawonCivilServantsandStateEmployeesinMontenegro,theHumanResourcesManagementAuthoritywasestab-lishedandbeganitsoperation.Apartfromhumanresourcesmanagement,thesystemicfunctionofthisauthorityismostofallthetrainingofcivilservantsandstateemployees.However,asthisfunctiondidnotexistinMontenegrobefore,itsdevelopmentshouldinnocasebeapproachedcasually,yetallrelevantaspectsandelementsofthissystemshouldbedevisedanddevelopedcarefully.
Theaimofthispublicationistobringclosertothereadertheenvisageddevelopmentofthissystem,theelementsofthesystemaswellasthebasicoutlinesofthefuturecivilservicetrainingcurriculuminMontenegro.
Thefirstpartofthispublicationpresentssometheoreticalandcompara-tivesolutionsandexperiences,whichdeterminepossibledevelopmentcoursesofthissystemwithrespecttotheexperiencesofsomedevelopedcountriesthatdevisedtheircivilservicetrainingsystemsbefore.Theob-jectiveoftheoverviewistoofferananswertodilemmassuchas:whatarethecurrentcivilservicetrainingsystemsindevelopedcountrieslike,what
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IntroductorybytheEditor
aretheobjectivesofthesesystems,whatistheapproachtothequestionofselectionofpersonnelforadditionalfunctionalcivilservicetraining,whichfinancingsystemshouldbechosenforthisimportanttask,andmanyotherquestionsconcerningallrelevantelementsofthissystem.
ThesecondpartofthepublicationprovidesanoverviewofsomeofthemostimportantfindingsobtainedbyatrainingneedsanalysisconductedintheMontenegrincivilservicesystem.MaterialcollectedduringtheimplementationoftheEARproject“PARiM-1”,whichwasanimportantinputforthe“PARiM-2”project,hasbeenprocessedandanalyzed,anditrevealedthattodatetherewasnosystemoftrainingofcivilservantsandstateemployeesinMontenegroandthatthissystemisnowtobedevelopedasarelevantsystemicfunctionof theHumanResourcesManagementAuthority.Hence,onlynowthesystemicprerequisitestoapproachpermanentandfunctionaltrainingofcivilservantsandstateemployeesinMontenegroinacomprehensiveandsystematicwayhavebeenmet.Beforetheestablishmentofthisinstitution,therewasnosys-tematicexecutionofthisfunctioninMontenegro,yetitwaseffectedonanad-hocbasisandunsteadily–differingfromauthoritytoauthorityandindividualpossibilitiesdependingontheavailableresources.TheHumanResourcesManagementAuthoritythusrepresentsasignificantnewagencywithintheadministrativesystemofMontenegro,whichwilllawfully,effectivelyandsystematicallyexecute,amongother,thisimpor-tantfunctioninthefuture.
Thethirdpartofthepublicationdisplaysthefirstdraftofapermanenttrainingprogrammethatistobecomplementedbysomeadditionalre-search,tobefollowedbyorganizationoftrainingassoonaspossible.
Finally,thefourthpartofthepublicationofferssomerecommendationsandsuggestionstotherelevantauthoritiesofMontenegrowithregardtoactionsandinputsthatarenecessaryfortheestablishmentandopera-tionofasustainablepermanentfunctionalcivilservicetrainingsysteminMontenegro.
11PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
IntroductorybytheEditor
Onthisoccasion,andatthisstageoftheproject,Iwouldliketoexpressmygratitudetoalltheexpertswhoparticipatedinthepreparationofthissignificantdocument,particularlytotheprojectteamaswellasDr.GozdanaMigličandRadojeCerović,MA,NevenkaPavličić,spec.ClinicalPsychologyandJadrankaVojinović,MA,whoworkedonthedevelopmentofsomeimportantelementsofthispublicationduringthe„PARiM-1“and“PARiM-2”projects.Furthermore,Iwouldliketothankthecivilservantsandstateemployeeswithinthestateauthorities,whohelpeduscarryoutthetrainingneedsanalysisduringthepreviousprojectbytimelyreturningthefilledquestionnairesthatfacilitatedtheexecutionofthisanalysis.
IowespecialthankstothedirectoroftheHumanResourcesManage-mentAuthority,MsSvetlanaVuković,andtheassistantdirector,MsJadrankaĐurković,aswellastothepersonneloftheHRMAforagoodcooperationanduttersupporttotheprojectteamintheprecedingworkonthisproject.
Podgorica,January2006
SlobodanDujić,PhD TeamLeaderofthePARiM-2Project
Civil Service Training System in Montenegro
14 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
IntroductorybytheEditor
15PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
CivilServiceTrainingSysteminMontenegro
Civil Service Training System in Montenegro
Doc. Dr Slobodan Dujić
1. INTRODUCTION
TheaimofthisdocumentistopresenttheworkaccomplishedtodateintheframeworkofthepublicadministrationreforminMontenegro,withrespecttotheestablishmentofapermanentcivilservicetrainingsystem,aswellastosetdownthebasesfortheadoptionofnecessarydecisionsbasedonwhichthissystemistobeoutlinedandfurtherdeveloped.
2. WHY IS THE ESTABLISHMENT OF A PERMANENT CIVIL SERVICE TRAINING SYSTEM NECESSARY AND WHICH MODEL IS MOST APPROPRIATE FOR MONTENEGRO?
2.1. Introduction
Inthispartofthepublicationwewillexplainthesignificanceofpermanentfunctionaltrainingandprofessionaldevelopment(hereinafter:training)ofcivilservantsandstateemployees(hereinafter:civilservants),aswellasthedifferencesbetweenfunctionaltrainingononesideandformaleducationontheotherside.Besides,wewillgiveabriefoverviewofthecurrentsituationandrecentactivitiesinthefieldofcivilservicetraininginMontenegro,andfinally,wewilldelineatesomefuture,i.e.expectedchangesinthefieldofpermanentadditionalfunctionaltrainingofcivilservants.ThisparticularlyrelatestotheexpectedchangeswithregardtothealreadystartedimplementationoftheLawonCivilServantsandState
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Employees.Thislawwasadoptedon21stApril2004(OfficialJournaloftheRepublicofMontenegro,No.27/04).Aconsiderablenumberofactivitiesontheimplementationofthislawhavebeenrealizedsincethen,whilethefirstamendmentsofitarealreadyunderway(May2005).
Withrespecttotheaforementioned,theaimofthisexpertiseisabovealltosetabasisforfindingpossiblesolutionsforthecreationofasystemofpermanentadditionalfunctionaltraininginMontenegro,atthecurrentstageofthePublicAdministrationReformprocess.TheestablishmentofaninstitutionforhumanresourcesmanagementinstateadministrationhasalreadybeenforeseenintheadoptedPublicAdministrationReformStrategy1,whichwasaccomplishedin2004,whenanewadministrativeauthoritywasintroducedintheMontenegrinadministrativesystem–theHumanResourcesManagementAuthority2.Inthisrespect,theStrategyalsoenvisagedan“organizationalbasisfortheestablishmentofanationalinstitutionforhumanresourcesmanagement,whichcomprisesalsoaunitresponsibleforpreparationandexecutionofprofessionalfunctionaltrainingofpersonnelinstateadministration….«�Briefly,besidetheregu-lationofthenormativesystemofthestate,oneofthemostimportanttaskswithintheframeworkofthePublicAdministrationReformwillalsobetheintroductionofanappropriatesystemofpermanentadditionalfunctionalcivilservicetraining.
Whenusingtheterm«civilservants»inMontenegro,ithastobeconsideredthatitisacorpscurrentlycomprisingapprox.10.000personsworkingintheStateAdministration(includingthepoliceandtheeducationsector,aswellasthedifferentservicesoftheParliament,theGovernmentandtheConstitutionalCourtandsomeotherstateauthorities).
1 ThePublicAdministrationReformStrategywasadoptedbytheGovernmentoftheRepublicofMontenegroinMarch200�.TheStrategywasalsopublishedasaseparatebooklet»PublicAdministrationReformStrategyinMontenegro«,Podgorica,March200�,COBISSCGID5�26864.
2 TheHumanResourcesManagementAuthoritywasestablishedinaccordancewithArticle28oftheRegulationontheOrganizationandWorkoftheStateAdministra-tion(OfficialJournaloftheRepublicofMontenegro,No.54/2004).
� Strategy,ibidem,page45.
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Attheverybeginning,itisnecessarytoemphasizetheproblemofrela-tionbetweentheadoptionofregulationsandtheiractualimplementa-tion.Thenormativeregulationofastatesetsonlyalegalframeworkfortheoperationofitsinstitutionalsystem4.Theterm‘institutionalsystem’refersofcoursetothesystemofformalinstitutions–authoritiesandorganizations,which,inaccordancewiththeprincipleoflegalityandotherimportantlegalprinciplesandregulations,performvariousfunc-tionsandtasks.Thesetasksareusuallyclassifiedintofourcategoriesinamodernadministration,inparticular:regulative,service,developmentalandauxiliary(supporting)tasks.Ofcourse,thementionedfunctionsarenotperformedbytheinstitutions–theyareactuallyperformedbythecivilservantsoftheseinstitutions.IfweconfineonlytothefieldofPublicAdministration,theadministrativefunctions,i.e.tasks,areperformedbyadministrativepersonnel-civilservantsandstateemployees.
Inrelationtotheabove-mentionedithastobenotedthatitisnecessarytoavoidthedangerofexcessivefetishizationofthelawandlegalnormstothedisadvantageofthesubsequentappropriateimplementationofthelegislation.Thisassertionreferstothefactthatveryofteninpracticetheattentionispaidtothepreparationandadoptionoflegalregulations(whichoftenrepresentseventheeasiestpartofthework),andmuchlessattentionispaidtothepractical,i.e.organizationalandfunctionalaspectsoftheirconsequentimplementation,ortheyareevenneglected.Asaresult,respectivelyduetoabeliefin“omnipotence”oflawandlegalregulations,aseriesofproblemsarise.Amongother,thereistheproblemofnegligenceofthesignificanceofpermanentadditionalfunctionalcivilservicetraining5.SuchamistakeshouldbeavoidedinMontenegro,since
4 Pleasenoteinthiscontextthatagreatmajorityoflegalregulations,e.g.inthefieldofadministration,regulatetheadministrativesystemintheinside:i.e.circumstances,relationshipsandrelationsamongadministrativeinstitutions,aswellascircumstancesi.e.relationsamongpersonnelinthatsystem.Onlyarelativelysmallnumberofleg-islativeandotheractsregulateexternalrelations–i.e.therelationsbetweenthestate(meaningitsinstitutionsandcivilservants)andcitizensandotherpersonssubjecttoprivatelaw.Thisannotationisrelevantinordertounderstandthedimensionsoftherelationswithintheadministrativesystemofthestate,aswellastherelationsbetweenthissystemanditsrelevantsystemenvironment.
5 AsimilarconclusioncanbefoundinthepublicationoftheorganizationOECDi.e.SIGMA,»CountryProfilesofCivilServiceTrainingSystems«,SigmapapersNo.12,
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anappropriatelegalframework(whichismostlyadoptedhere)isanes-sential,butinnocasesufficientoreventheonlyprerequisiteforefficientandeffective6operationoftheadministrativesystemofastate.
IthastobenotedthatcurrentlythereisnocivilservicetrainingsysteminMontenegro,althoughsuchasystemrepresentsthekeyelementofahumanresourcesmanagementanddevelopmentsysteminstatead-ministration.Currentideasofpublicinstitutionsmanagementarethatthereisnosuccessfulmodelofhumanresourcesmanagementinpublicinstitutions,ifthereisnolinkagebetween:a)fairandtransparentselec-tionofhumanresources,i.e.theirrecruitmentinpublicadministration,b)thesystemoftheirtraining,c)thesystemofrewardingsuccessfulperformance,andd)thesystemoftheirpromotion.Onlyaninternallycoherentandpurposefullylinkedsystem,whichharmoniouslyconnectsallthementionedelements,yieldsgoodresultsinpractice.Otherwise,anunsynchronizedoperationofthementionedelementsofthesystemcausesalackofoverview,inefficiencyandinefficacyofthefunctioningofthePublicAdministrationSysteminitsprobablymostsignificantpart–thefunctioningoftheso-called‘’humansubstrate”or“humancapital”.
Inthefollowing,itisnecessarytoseekanswerstothequestionofwhatistherolei.e.significanceofadditionaltrainingandprofessionaldevel-opment(intheframeworkoftheintegralfunctionofthe“HRM”and“HRD”–thatis,thefunctionofHumanResourcesManagementandHumanResourcesDevelopmentinPublicAdministration).Hence,itisnecessarytoposethequestionwhetherornotasuccessfulandefficientfunctioningofthepublicadministrationsystemasawholeispossible,ifnoadequatesystemofHRMandHRDisprovided.Thekeyintegralpartofitisasystemofadditionalfunctionalcivilservicetraining.
Theposedquestionrequirestwoadvancenotices:firstly,thatwespeakabout»additionalfunctionaltrainingandprofessionaldevelopment«of
ParisOECD1997,OCDE/GD(97)122.,page.15.6 Withregardtothequestionofmeasuringefficiency,i.e.effectivenessofoperation
ofinstitutionsintheareaofpublicadministrationinMontenegro,theconclusionisthatthereisactuallynosystematicintroductionofaqualitysystem,i.e.systemofmeasuringeffectivenessofworkofpublicadministrationinstitutions.
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civilservants,andnotabout»additionaleducation«7,andsecondly,itisnotpossibletosolveeveryproblemofthepublicadministrationsystemoperationmerelywithadditionalfunctionaltraininganddevelopmentofcivilservants.Asthepublicadministrationsystemiscomplex,theanswerstotheproblemsofefficiencyofitsfunctioningmustnecessarilybecomplexaswell.Tosummarize:whenanalyzingissuesofefficiency,i.e.effectivenessofpublicadministrationoperation(oritsparts,hencerelatingaswelltothelevelofindividualadministrativeinstitutions),weunavoidablyhavetoaskthequestion:whatisthecauseforsuchorotherconsequences?Itispossiblethatacertaininstitutionofthepublicadministrationsystemoperatesunsatisfactorily,i.e.inefficientlyduetoaninadequateorganiza-tion,resp.becauseitisnotefficientincontrollingitsbusinessprocesses.Theremightaswellbeotherreasons–e.g.aninadequatelydevelopedsystemofpersonnelmotivationandtherewithassociatedlackofmotiva-tiontoworkandnotduetoinsufficienttraining.
Theabovementionedquestionthusimposesthefollowinganswer:suc-cessfulandefficientoperationofthepublicadministrationsystemasawholeisnotpossible,ifanappropriateandeffectivesystemofhumanresourcesmanagementanddevelopmentsystemintheadministrationisnotprovided.Yet,thefollowingremarkhastobeaddedhere:wecannotseekthecausesforineffectivefunctioningofanadministrativesys-temalwaysorexclusivelyinthenon-existenceofasystemforadditionalfunctionalcivilservicetraining,asthesecausesmaybehidden(apartfromthementioned)inmanyotherfactorsaffectingtheefficiencyandeffectivenessofoperationoftheadministrativesystemofastate.
Alltheabovestatedindicatesanextraordinarycomplexityofthisproblem,whereprobablytheeasiestpartistodraftandadoptanewnormative
7 ‘Education’isatermwhichreferstotheactivitiesofUniversitriesandsimilareducationalorganizations,whicharecompetenttoissuedifferentdiplommas,certificates,etc.Suchdocumentstestifythatapersonhassuccessfullyconcludedaneducationalprogramme.Ontheotherhand,anadditionalfunctional‘training’ofadministrativepersonnelisexecutedinshorterseminars,coursesandworkshops,whichrisethelevelofknowl-edgeandabilityforbetterandmoreeffectiveworkintheirworkingplaces(thisatthesametimemeansthatherewespeakaboutthepersonswhohavealreadysuccessfullyconcludedaformaleducationalprogramandtheyarealreadyemployed).
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frameworkfortheoperationofthesystem(althoughwedonotunderes-timatethisaspecteither).However,itisnecessarytoonceagainadmon-ishofthefactthatthenormativeframeworkrepresentsonlyoneoftheelements,i.e.factorsofanefficientoperationofapublicadministrationsystem.Thisappliesinthesameextenttotheoperationonthemacroandthemicrolevelaswell.Fromthispointonwards,aseriesofpracticalorganizationalandotherproblemsisopened,whichhavetobesolvedinthepublicadministrationreformprocess.
2.2. Why is functional training and professional development of civil servants necessary?
Invariousmethodologicalmaterialsfromthedomainofcivilservicetrainingsystem,objectivesofin-servicetrainingaredefinedasto:
Increasetheefficiencyintheoperationoftheentirestate(andbroader–public)administration,
adaptthecivilservants’knowledgetothenewtechnologiesandproceduresofworkintheadministration,
facilitatehorizontalmobilityofcivilservants(reassignment), facilitateverticalmobilityofcivilservants(promotion), increasethemotivationtoworkofcivilservantsintheadministrative
system, improvethepossibilitiesforhumanresourcesmanagementinthe
administrationetc.8
Besidethesegeneralobjectivesofcivilservicetrainingandprofessionaldevelopment,aseriesofother,concreteobjectivesofcivilservicetrain-ingandprofessionaldevelopmentcanbeidentified,suchasadditionaltrainingfortheimplementationofnewregulations,supporttotheexecutionofvariousreforms9,etc.
8 Compareinpublication»PublicServiceTrainingSystemsinOECDCountries«,SIGMAPAPERSNo.16,Paris,France,pg.7-8.
9 Inconnectiontothis, inaprofessionalpublicationwecanfindthefollowing:
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Aparticularlyimportantfactordeterminingtheneedforintensivead-ditionalfunctionalcivilservicetrainingandprofessionaldevelopmentisthefactthatinso-called»transition«countrieswecanwitnessagenuinerevolutioninthefieldofchangesofthelegalandinstitutionalsystemofthestate.Eachyearamultitudeofnewlegalregulationsareenacted,duetowhich,civilservantsconstantlyencounternewregulations,whichhavetobeunderstoodcorrectlyandimplementedaccordingly.Thisisanotherreasonwhyadditionalfunctionalcivilservicetraininganddevelopmentisofanextraordinarysignificance–evenmoresoinso-calledtransitioncountriesthanin»countriesoflong-lastingdemocracy«,whoselegalandinstitutionalsystemsareinarelativelystablecondition(herewespeakaboutlegalsystems,whicharenotundergoingradicalchangesintherecentyears,becausesuchprocessesarealreadycompleted)10.
InOECDcountries,thegeneralreasonsforsuchtrainingandprofessionaldevelopmentarespecifiedastheneedfor:
supportingandfacilitatingthechangesinthepublicadministrationsystem(ofparticularsignificanceisthesupporttovariousreformprocesses)
moreefficientservicetothepublici.e.citizensandlegalentities(animportantawarenesshereisacertainchangeinthementality:civilservantsarenothierarchicallyabovethecitizensandotherpersonsofcivil law-theyarenotsuperiortothem,yettheyshallrenderparticular»services«-hencetheterm»civilservants«)
»…Publicsectorreformasawholewillnotsucceedunlessitisbuttressedbyapolicyofcomprehensiveandcontinuouspublicservicetraining,whichinturnwillenablethepublicsectorstafftomeetthechallengeofimplementingreforms…«.SeemoreindetailinpublicationoftheSIGMAorganization,»CountryProfilesofCivilServiceTrainingSystems«,ibidem.,p.5.
10 Compareinthepublication»PublicServiceTrainingSystemsinOECDCountries«,ibidem,p.2.SimilaralsointhepublicationoftheSIGMAorganization»CountryProfilesofCivilServiceTrainingSystems«,ibidem,p.�,wherethefollowingtextcanbefound:»…AstheeconomicsituationcallsforrapidchangesinPublicAdministrationandasresourcesfortrainingarelimited,itisanimportantissueforallcountriesintransitiontodisposeofaneffectiveandefficientcivilservicetrainingsystem,whichwillenablestafftocarryouttheirnewtasksandthussupporteconomicdevelop-ment…«).
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increasingefficiencyandeffectivenessinthepublicadministration–particularlytakingintoaccountthatthesystemsofPublicandStateAdministrationareencounteringbudgetrestrictionsandsimultane-ouslywithdemandsforprovisionofbetterqualityservicetocitizensandlegalpersons11.
Alltheabovementionedinformationmustnecessarilybetakenintoaccountwhendecidingontheimplementationoftheplannednewcivilservicetrainingandprofessionaldevelopmentsystem,whichisantici-patedinthenewLawonCivilServantsandStateEmployeesandinotherregulationsinthisfield12.
2.3. Typical approach to the question of civil service training and professional development in some developed European countries
TheneedforadditionalfunctionalcivilservicetrainingandprofessionaldevelopmenthasbeenignoredforalongtimeevenindevelopedEuro-peancountries,OECDmemberstates1�.However,systemsoffunctionalcivilservicetrainingandprofessionaldevelopmenthavebeenstartedtobeestablishedinthesecountriesduringthesecondhalfofthe1960-ies,thoughtheapproachwasquitediverse:thesystemsvariedfromcoun-trytocountry.Centralizedsystemsprevailedinunitarystates,whileinfederations,i.e.othercompositestates,decentralizedsystemswerepre-
11 ChangesinthefieldofmanagementinPublicAdministrationreferespeciallytotheinclusionofsomeimportantelementsoftheso-called»NewPublicManagement«.Thoseelementsrefertothedemandsforchangingthemanagementmethodsinthepublicsector.Here,thefollowingissuesareofanutmostimportance:betterbudgetarymanagement,decreaseoftheimportanceofhiarerchicalstructuresandanintroduc-tionoftheprinciplesofteam-work,introductionofinterlinkedprojectteams,etc.Inthisrespect,theprocessoftheextensionofresponsibilityforresultstothelowerlevelsofthesystemofPublicAdministrationisaveryimportantnovelty.Here,investmentintheHRDisofanutmostimportance.
12 Article115ofthelaw.1� Compareinthepublication»PublicServiceTrainingSystemsinOECDCountries«,
ibidem,p.6.
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dominant(intermsofterritorialdistributionofresponsibilityforcivilservicetrainingandprofessionaldevelopment).
ThegeneralpersonnelsysteminOECDcountrieshadaninfluenceontheestablishmentofthetrainingsystem.Incaseswhicharebasedontheso-calledcivilservice‘CareerSystem’,thereisadifferenceincomparisontotheapproachoftheso-called‘PositionSystem’.Thecareersystemrequiresacivilservicetrainingsystemthatsupportscareerdevelopmentofcivilservants.Inthepositionsystemthetrainingmodelistoacertainextentlessimportant.However,thisdifferentiationhasbecomelesssignificantinrecentyears,duetothetrendofconvergencei.e.thecombinationofthosetwosystems.Thecombinationoftwoormoresystemscanproducesynergyastheadvantagesofonesystemcanbeusedandtheimpactoftheweakpointsoftheothersystemcanbelevelledoffatthesametime.
WhatisinterestinginthisdomaininOECDcountries,isthequestionofpersonnelpolicy,i.e.philosophy:inthemajorityofthesecountries,thenewcivilservantsareemployedwithveryspecificeducationalback-ground(predominantlylegalandeconomicgraduates),whileontheotherhand,inothercountriesonlythelevelofprofessionaleducationmatters,andthepreferenceisnotgiventoaspecificbackgroundofprofessionaleducation(ase.g. inGreatBritain).ThisiswhyinGreatBritaintheimportanceofadditionalfunctionaltraining(theso-calledon-the-jobtraining)wasunderstoodmuchearlierthaninothercountries.Initialfunctionaltrainingofnewlyemployedcivilservantsisanobligationinthiscountry,whileitisofmuchlessimportanceinsystems,wheretheyrecruitfirstofalllawyersandeconomists(herethequestionofsubstanceoftheundergraduatestudycurriculaoftheeducationalinstitutionsisveryimportant14).
14 Inthisrespect,wecanmakeathesisthatinMontenegrotheundergraduateedu-cationalcurriculadonotcontainsufficientlypracticalmatters,whichwouldenablelatereffectiveinclusionofthegraduatesintotheworkingenvironmentinpublicadministration.Thisisthereasonwhy,lateron,thereisaneedforarelativelylongperiodofinceptiontrainingofthenewstaffinpublicadministrationauthorities.Therefore,herewecanreachtheconclusionthattheneedsofPublicAdministrationandeducationalcurriculashouldbeinter-linked.Universitiesandotherhigherlevel
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2.4. Elements constituting the civil service training system
Expertshaveascertainedthefollowingfactors toberelevant inthedeterminationofthecontentsofcivilservicetraining,i.e.professionaldevelopment,forOECDcountries:
definitionoftheobjectivesoftrainingandprofessionaldevelop-ment
appropriatelegalframeworksfortheimplementationoftrainingsufficientfinancialsupportexistenceofatraininginstitutionandappropriatestatusofsuchan
institution regulationofstatusofpersonswhoperformthecivilservicetrain-
ing determinationofthecontentsofthetrainingcurricula,aswellas
executionofcomprehensiveTrainingNeedsAnalysesandalike15.Someexpertsaddthefollowingelement,i.e.questiontotheabovemen-tionedfactors:whichcategoriesofcivilservantsshouldattendthemostintensiveadditionalfunctionaltraining,i.e.professionaldevelopmentprograms?16Thisdiffersmuchfromcountrytocountry:insomesystemsintensiveadditionalfunctionaltrainingisaprivilegetoonlythehighestlevelswithinthecivilservicesystem,whileinothersystemsadditionalfunctionaltrainingisprovidedforthemiddleandlowercivilservicepersonnelaswell,apartfromthe“topmanagement”.Itdependsonthetraditionofacountryandonotherfactorshowthisissueistreated,butitcertainlyhastobeemphasizedthatamodernapproachtomanage-mentinadministrativesystems–amongotherthetrendofdevolution
educationalinstitutionsshouldincludeintheireducationalcuricula,asmuchaspos-sible,alsothematterswhichareimportantandrelevantforsubsequentsuccessfulworkoftheirgraduatesinthesystemofpublicadministration.
15 Compareinthepublication»PublicServiceTrainingSystemsinOECDCountries«,ibidem,p.7.
16 SeeSIGMApublication»CountryProfilesofCivilServiceTrainingSystems«,ibidem,p.17-18.
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ofresponsibilitytolowerlevelsoftheadministrativesystem–requirescertainadditionalfunctionaltrainingforalllevelswithinthecivilservicesystem.
TheadoptionofacertaingovernmentalpublicpolicyconcerningeachofthesefactorsdeterminestoasignificantextentthefeatureofaconcretecivilserviceTrainingSystem.Ofcourse,eachofthesefactorsaffectsthefeatureofaconcretesystemasawhole–thechangeofoneelementofthesystemunavoidablyaffectstheotherelements,aswellasthesystemasawhole.Particularlyrelevantistheadditionalfunctionalcivilservicetrainingwhenacountryheadstowardslarge-scopereformsofthepublicadministrationsystem17.ThisawarenessisofutmostimportancealsoforCEEcountries,whichareinthereformprocessoftheirsystemsaswellasintheprocessofaccession,i.e.integrationintheEuropeanUnion.Allthishastobeborneinmindwhenconsideringthefeatureofacivilservicetrainingsystem(particularlywhendecidingontheallocationofbudgetfundsintendedforthispurposewhenplanningthebudget).
TheobjectivesofcivilservicetrainingandprofessionaldevelopmentinOECDcountriesareusuallydefineddirectlyinthelegislation,whichregulatestheHumanResourcesManagement,i.e.Developmentintheadministration(thatis,inthelawgoverningthecivilservicesystem,orinanotherregulation18,governingthefieldofcivilservicetrainingand
17 InNorthernandWesternEuropesuchreformswereexecutedin70.and80.yearsofthepreviousCentury,buttherewereimportantdifferencesamongtheobjectivesofthesereforms.Theobjectiveswerequiteheteronomous,e.g.:democratizationoftheState(Spain),»de-bureaucratization«(Germany),de-centralization(France),etc.Thenew»wave«ofpublicadministrationreformsstartedinthelate90iesofthepreviouscentury,especiallyinAnglo-Saxonstates(»ReinventingGovernment«inUSA,»PublicService2000«inCanada,»NextStepsAgencies«inGreatBritain,andsimilarreformshavealsobeencarriedoutinAustralia,NewZealand,etc.).
18 Insomecountriesthesearesecondaryregulations,whileinSpain,FranceandItalythisfieldisregulatedincollectiveagreements(thoughithastobenotedthattherearecertainprovisionsinpublicregulations).Collectiveagreementsusuallyregulatemorepreciselytherightsanddutiesofpublicservantswithregardtotraining.Ontheotherhand,e.g.inGreatBritainthereisnolegislationtoregulatethisissue(whichisinlinewiththesituationregardinglegalregulationinthiscountry),butitdoesnot
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professionaldevelopment).Somememberstatesoftheabovementionedintegrationhavelegallyregulatedobligatoryadditionalcivilservicetrain-ing19.Thereby,ithastobenotedthatthemajorityoflegalregulationsinOECDcountriesregulatestherightandobligationofcivilservantstoadditionalfunctionaltrainingandprofessionaldevelopmentinageneralmanner.Onlyinexceptionalcasestheregulationsinvolveaconcretiza-tionofthisright,i.e.obligationintermsofquantification,i.e.extentoftrainingandprofessionaldevelopment20.
Oneofthemostimportantobjectivesofadditionalcivilservicetrain-inginthementioneddevelopedcountrieswastolinktheadditionalfunctionalcivilservicetrainingwiththedevelopmentoftheircareers.However,thisobjectivehasnotbeenachievedanywhereyet–additionaltrainingandprofessionaldevelopmenthasbeendefinedasanecessaryrequirementforpromotionofcivilservantstohigherrankedpositionsonlyinexceptionalcases21.Thereasonforthisliespartlyinacertainextentofpolitizationofthequestionofdecisionmakingonpromotiontothehighestcivilservicepositionsintheadministrativesystem,towhichnoadministrativesystemisimmune.Thesefactorsmayaswellbeunderstoodfromtheaspectoffinancialconsequences:ifadditionalfunctionaltrainingisstipulatedasaconditionforpromotiontoacertainhigherrankingpost,equalopportunitiesforapplicationtoadditionaltrainingandprofessionaldevelopmentprogramshavetobeofferedtoall interestedcandidates.Thisisusuallyassociatedwithgreatinterestintraining,andconsequentlywithhugeexpenses.Asaresponsetothisproblem,somecountrieshaveintroducedtheobligationtoadditional
meanbyfarthatnosignificanceisattributedtoadditionalfunctionaltrainingofcivilservantsinthiscoutnry.
19 Additionalfunctionaltrainingofcivilservantscanbedividedintotwomainconstitu-ents:trainingpriortoenteringpublicservice,the»pre-servicetraining«andtrainingduringemploymenti.e.»in-servicetraining«.OntheseissuesseemoredetailsinthefrequentlymentionedSIGMApublication,»CountryProfilesofCivilServiceTrainingSystems«,ibidem,pg.20.
20 AnexceptioninthisregardisFrance,wheretheextentofcivilservants’rightstoadditionalfunctionaltrainingisdefined.
21 Compareinthepublication»PublicServiceTrainingSystemsinOECDCountries«,ibidem,page10.
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trainingonlyfollowingthepromotiontoacertainpost.Thepromo-tionistherebydeterminedconditionallybyanadministrativedecision-andtheconditionissubsequentsuccessfulcompletionofanadditionalfunctionaltrainingprogramoftheemployees,oftenwithaspecificexamattheendofthetrainingprogram22.Apartfromthis,insomecountriesitispracticedthatthecivilservantsbearpartofthecostsofadditionalfunctionaltrainingthemselves.
Oneofthekeyquestionsforthedeterminationofthefeatureofacivilservicetrainingsysteminacountryisundoubtedlythequestionoffi-nancingofsuchasystem.InOECDcountries,generally,therearetwosystemsoffinancinginthisfield:
asystem,inwhichthefinancialresourcesforadditionalfunctionaltrainingofcivilservantsaredecentralized(whichmeansthattheresourcesareapprovedtoindividualinstitutionsofthestateadmin-istrationsystem);
asysteminwhichthefinancialresourcesforadditionalfunctionaltrainingofcivilservants isdecentralized(whichmeansthattheresourcesareprovidedtoacertaininstitutionatthecentrallevelofthestateadministrationsystem–inthissystemtheparticipationofcivilservantsintrainingprogrammesisfreeofcharge)2�.
Itisimportanttoemphasizethatamoderntrendinthisfieldisacertaincombinationofbothmodels–i.e.theformingofakindof»mixed«fi-nancingsystem.Thismeansthattheresourcesforadditionalfunctionaltrainingofcivilservantsarepartlydecentralizedanddisbursedtopreciselytarget-orientedhorizontalprograms,24andpartlytheresourcesremain
22 InFrance,asanexample,therearetrainingprogrammesthatfacilitatethepreparationforinternalcompetitionforpromotiontoahighercivilserviceposition.Althoughsuchprogrammesareformally,i.e.legally,notobligatory,itisalmostimpossibletopasstheforeseenexamwithoutpriorattendanceofsuchadditionalfunctionaltrain-ingprogrammes.InGermanythereisasimilarcivilservicetrainingprogrammeattheFederalAcademyforPublicAdministration.
2� Compareinthepublication»PublicServiceTrainingSystemsinOECDCountries«,ibidem,page12.
24 InOECDmembercountriesitisinterestingthattheexecutionofcertain»horizon-
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inthestateadministrationauthorities(fortraining intheso-called»verticalareas«).Theadvantageofthismodelisperfectlyclear:firstly,thegovernmentholdsaninstrument,bywhichitcandirectlyinfluencethequalityofits»humansubstrate«,andsecondly,thismodelfacilitatesthesatisfactionofparticular(»vertical«)needsforadditionaltraininginindividualstateadministrationauthorities.Atthesametime,theprob-lemsthatarise,ifthereisnocombinationofthesemodelsinpractice,areapparent.Thebasicproblemofthecentralizedmodelisthatthereisnotsufficientflexibilityandthatitdoesnotenablethesatisfactionofspecificneedsofindividualstateauthorities.Ontheotherhand,thebasicdeficiencyofacompletelydecentralizedsystemisthattheeffectsofadditionalfunctionaltrainingarescatteredandthattheresourcesarespentonirrelevantcontents,whilethereisnoevaluationofthedegreeofeffectsofsuchtraininginpractice.Besides,inacompletelycentralizedsystem,theGovernmentasthecentralelementoftheadministrativesystemhasnoeffectiveinstrumenttoinfluencethequality,i.e.substanceofknowledgeofitscivilservants.Thisisduetothefactthatindividualstateauthoritiestotallyindependentlydecideonwhereandwhichkindofknow-howtobuywithinthetrainingmarket.ThisisnotabigprobleminhighlydevelopedadministrativesystemswithsophisticatedmethodsofHumanResourcesManagement.Butitiscertainlyaprobleminad-ministrativesystemsthatarenotsufficientlydeveloped.
Eachofthementionedmodelsrequiresacertainmonitoringandcontrolsystem–particularlyfromtheaspectofassessmentwhethertheobjec-tivesoftheadditionalfunctionaltrainingofcivilservantsareactuallyachieved.Relativetothis,itisnecessarytoapplyanadequatemethodologyofneedsassessmentforadditionalfunctionaltraining(TNA–TrainingNeedsAssessment)ononehand,andontheotherhanditisnecessarytoprovideanadequatemethodofevaluationofthescopeofeffects(ac-tuallyachievedresults)oftheexecutedcivilservicetrainingprograms.
tal«civilservicetrainingprogrammesisoftencentralized.Theterm»horizontal«programmesrelatesabovealltothosetopicsthatarerelevantforallcivilservants,regardlessoftheconcretestateauthoritytheyareemployedin(e.g.humanresourcesmanagement,organizationandpanningofwork,budgetfinancing,draftingofnewlegalregulations,foreignlanguages,computerliteracyandalike).
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Particularlyimportantinthiscontextistoensurethattheexistingfi-nancialresourcesintheadministrativesystem,intendedforadditionalfunctionalcivilservicetraining,donotspillover,i.e.arelaterusedforotherpurposes.Suchariskisrealistic–eveninverydevelopedsystems–particularlyiftheheadsofcertaininstitutionsarenotentirelyawareofthesignificanceofadditionalfunctionaltrainingofemployees(thatiswhyexistingresourcesareusuallytransfusedtoother,momentarily»moreimportant«purposes).
Moderntrendsinsomehighlydevelopedcountries(e.g.GreatBritain)showthatinstitutionswhichareinchargeofadditionalfunctionalcivilservicetrainingaremoreandmoreexpectedtocovertheexpensesoftheiroperationthemselves–partlyorevenentirely.Thismeansthatsuchinstitutions(forpermanentfunctionalcivilservicetraining)havetocompetewithothersuppliersofsimilartrainingservices.Theiradvantageiscertainlythattheyarealreadylocatedintheveryframeworkofthepublicadministration,andthusareinthesituationtobetterunderstandtheproblemsandneedsofthepublicsectorthantheircompetitors(e.g.organizationsfromtheprivatesector).However,ontheotherhand,thisforcessuchinstitutionstorationalizeanddecreaseexpenses,i.e.tomaximizetheirprofit,whichmightinextremecasesevenleadtocertaindysfunctionsintheexistingcivilservicetrainingsystem25.Suchaproblemarisesinpublicadministrationinstitutionsthathirethetrainersthemselves(suchastheBritishCivilServiceCollege),butnotinsmallercountries,inwhichagovernmentaltraininginstitutiononlyplansandorganizestherealizationofacertaintrainingprogrammeforcivilservants,whileitengagesauniversityunit,trainingprovidersfromtheprivatesectororevencivilservantsfortheexecutionoftheprogramme.
EvenindevelopedOECDcountriesthereissometimesalackofrelevantdataonthescopeoffinancialresourcesinthePublicAdministrationthatareallocatedforadditionalfunctionalcivilservicetraining.Availabledataforsomecountriesshowthattheresourcesspentforthispurposeareinthe
25 Sucha»dysfunction«ise.g.anexcessivecommercializationandnegligenceofneces-sarybut»lowprofit«programmes.
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amountofapprox.2–6%oftheresourcesspentforcivilservants’salariesintheadministration26.Intransitioncountriesthisamountshouldinnocasebelessthan2%,asaminimum,sincetheneedfortraininginthesecountriesiscertainlymuchgreaterthaninbetterdevelopedcountries,forreasonsalreadymentionedinthistext.
Asregardsthequestionofstatusoftheinstitutionshavingthefunctionofadditionalfunctionalcivilservicetraining,thereisnouniformmodelintheworld.Ononehand,thereareorganizationalmodelsinformofso-called»administrativeacademies«orsimilarlydesignatedinstitutions,whichareorganizationallylocatedwithinministriescompetentforaffairsofpublicadministration27,whilesomewhereelsetheseinstitutionsare»expelled«tothewiderperipheryofthepublicsector(andhavee.g.thestatusofpublicinstitutes,agencies,etc.).Eventually,insomeadministrativesystemsthereisnosuchinstitution,buttheadditionalfunctionalcivilservicetrainingisentirelydecentralized,i.e.itisleftuptoeachauthorityandorganizationoftheadministrativesystemtoprovidefortheadditionaltrainingoftheirpersonnelontheirown28.Consideredfromthisaspectitcanbeconcludedthatthereisnopredominantmodel,thoughitcanbeascertainedthattherearecertainadvantagesinthemodel,wheresuchaninstitutionistightlylinkedwiththeadministrativesystemofthestate.Inthiswayrelevantinformationareavailabletothisinstitution,facilitat-ingittobewellacquaintedwiththeneedsforadditionalfunctionalcivilservicetraining.Besides,literaturedealingwiththisissueofferscertaincriteriafortheassessmentofpotentialeffectivenessofsuchinstitutions.Thesecriteriaareasfollows:
26 ThedataforGreatBritainfortheperiodbetween1989-1990is6%,whileinFrance2%oftheresourcesallocatedforsalarieshavebeenspentonthispurposein1992and�,2%in1994.Compareinmoredetailinthepublication»PublicServiceTrainingSystemsinOECDCountries«,ibidem,page1�.
27 E.g.inFrance,SpainandSloveniaitiswithintheministriescompetentforpublicadministrationandpublicsectorreform,andinGermanyandHollandwithintheministriesofinterior.InGreatBritainthereisaspecialgovernmentalcommission(»CivilServiceCommission«)iscompetentfortheseaffairs.Formoredetailsseethepublication»PublicServiceTrainingSystemsinOECDCountries«,ibidem,page15.
28 Accordingtoavailableinformation,thisisthecaseinHolland.
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- theinstitutionshouldhaveacertaindegreeoffunctionalindepen-dence(intermsofcurriculumelaboration
- certainresourcesforthedevelopmentoftheinstitutionanditstrain-ingcurriculashouldbeensured)
- itisfavorablethattheinstitutionbeexposedtoacertaindegreeofcompetitionwithotheralike
- institutions(thisforcestheinstitutiontoarelativelyfastreactiononnewtrainingneedsofemployees)
- certainresourcesforactiveparticipationinvariousnationalandinternationalinstitutionalandprofessionalsymposiumsshouldbeprovidedtotheinstitution,whichfacilitatesthefollowingofthedevelopmentoftheprofession
- theinstitutionshouldhaveacertainadvisorybody,throughwhichitcanestablishcontactswiththebeneficiariesofitsservices,i.e.throughwhichitdeterminestheneedsforadditionalfunctionalcivilservicetraining.29
- Eventually,itisnecessarytotreatthefollowingquestion:whichcat-egoriesofcivilservantsneedmostintensiveadditionalfunctionaltraining?Inthisrespect,therearethreegeneralmodels,i.e.approaches,indevelopedcountries:
theso-called»elitistapproach«,whichadvocatesthemostintensiveadditionalfunctionaltrainingonlyforthehighestrankingcatego-riesofcivilservants;thismeansa»productionofanadministrativeelite«- i.e. formingasmallbynumber,butexceptionallytrainedadministrativeelite(anillustrationofthismodelistheoperationoftheFrench»EcoleNationald’Administration«);
theso-called»Anglo-Saxonapproach«,whichinvolvesanintensivecomprehensionofthebusinessexcellencemodelintheoperationofthepublicsector(the»NewPublicManagement«approach);
29 Compareinthepublication»PublicServiceTrainingSystemsinOECDCountries«,ibidem,page16.
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theso-called»Germanapproach«whichatfirstsightseemsthemostacceptableatthisstageofdevelopmentofCEEcountries;thismodelinvolvesapartialcomprehensionoftheso-called»elitistapproach«(intensivetrainingoftheadministrativeelite, i.e.thehighestcat-egoriesofcivilservants),whereasthetrainingofmediumandlowercategoriesofcivilservantsisnotignoredeither�0.
Theexistenceornon-existenceofall thesesystemrequirementsandpresumptionscanbereviewedinthesequenceofthisexpertise.Whatremainstobeconsideredrelativetothis,isthequestionwhetherthereisarecognizablesystemofcivilservicetraininginMontenegroatthistime,andwhataretheplansinthisregardintheframeworkoftheforthcomingelaborationoftheLawonCivilServantsandStateEmployees.
2.5. The current situation in the field of civil service training in Montenegro
Currentlyitisnotpossibleyettospeakintermsofatraining»system«intheMontenegrinadministration,sinceseveralimportantprerequisitesfortheexistenceofa»system«,mentionedintheprecedingpartofthistext,aremissing.However,theadoptionofthenewlawgoverningcivilservicecreatedthepreconditionsforthedevelopmentofthissystem.
Asmentionedintheprecedingpartofthistext,theexistenceofa»system«requiresthefollowingsystemelements:
theprovisionofanadequatelegalframework(legalbasis)fortheexecutionofthecivilservicetrainingfunction
theexistenceofaninstitutionthatperformsthefunctionofplanning,organizingandexecutionofadditionalfunctionaltrainingprogramsforemployeesintheadministration
�0 SeemoredetailsintheSIGMApublication»CountryProfilesofCivilServiceTrain-ingSystems«,ibidem,pages17-18.
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theadoptionofastrategyforthedevelopmentofthissystemwithdefinedobjectivesofthecivilservicetraining,aswellaswithsetprioritiesastowhichcategoriesofcivilservantsshouldattendthemostintensiveadditionalfunctionaltrainingintheshort-termandinthelong-termperiod
theestablishmentofaspecialbodyforthecoordinationofactivitiesinthisfield(fortheharmonizationofinterestsofdifferentadmin-istrativeauthorities)
theprovisionofanadequate(stable)financingsystemfortheex-ecutionofanadoptedcivilservicetrainingprogram.
Legal framework
ThelegalframeworkforthefunctioningofthesystemofpermanentfunctionalcivilservicetraininghasbeenestablishedbytheLawonCivilServantsandStateEmployees,whichincludesallrelevantissueswithinthisfield,thus,thissystemprerequisitehasbeenmet.
The institution
InearlyMarch200�theMontenegringovernmentadoptedthe»StrategyforPublicAdministrationReforminMontenegro2002-2009«.ThisdocumentanticipatestheestablishmentofaspecialAgencyforHumanResourcesManagementinPublicAdministration,andthemainthreefunctionsofthisinstitutionwillbe:a)HumanResourcesManagementintheadministration,b)performanceofthefunctionofadditionalfunctionaltrainingofcivilservants,andc)thedevelopmentofmethodsandtech-niquesofworkintheadministration.TheHumanResourcesManagementAuthoritywasestablishedin2004anditcoversallimportantfunctionsinthefieldofhumanresourcesmanagementanddevelopmentinstateadministration.Thus,thissystemrequirementhasalsobeenmet.
The strategy
Besidetheadoptionofthelegalframeworkandtheestablishmentoftheinstitutionalstructureforthefunctioningoftheadditionalfunctionalcivil
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servicetrainingsystem,itisnecessarytoadoptaspecificgovernmentalstrategyinthisfield.Thisdocumentshouldmorepreciselydefineabovealltheobjectivesofthecivilservicetraininginaparticulartimeperspective,thecurriculawhichshouldbeofpriority,aswellasthequestionwhichtargetgroupsoftheadministrativeapparatusaretobemostintensivelyadditionallyandfunctionallytrained.Thissystemrequirementhasnotbeenmet,asthestrategyhasnotbeenadopted,butpursuanttotheLawonCivilServantsandStateEmployeestheHumanResourcesManagementAuthorityhastheobligationto“definethetrainingcurriculum”.�1Thiscurriculumshouldbedefinedanditsrealizationshouldbestartedassoonaspossible.
The advisory body
Thisbodyisanimportantelementofthesystem,sinceithastocoordinatethevariousneedsoftheadministrativeauthorities.Itshouldconsistofrepresentativesofthecivilservicetraininginstitution,aswellasofrep-resentativesofministriesandotherstateadministrationauthorities.Thiswillensurethecoordinationofworkrelatingtotheassessmentofneedsforpermanentfunctionaltrainingaswellastothelogisticcoordinationofworkandselectionofcivilservantstoattendtheindividualtrainingprogrammes.SuchanadvisorybodyhasalreadybeenestablishedintheMontenegrinstateadministration:ontheinitiativeoftheHumanResourcesManagementAuthority,»contactpersons«havebeenappointedineveryministryandotherstateadministrationauthority,aswellasinotherstateauthoritiesthatfallunderthesystemofuniformhumanresourcesmanage-mentinMontenegro.So,thissystemrequirementhasalsobeenmet.
The financing system
Finally,oneofthekeysystemicprerequisitesofthissystemistheexistenceofaregulatedandstablefinancingsystemoftheadditionalfunctionalcivilservicetrainingIntherecentyearsthisquestionhadnotbeenregulatedatall,andvariousadhocactionsofcivilservants’trainingmostlyrelied
�1 Article9�/2oftheLawonCivilServantsandStateEmployees.
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uponresourcesofinternationaldonorinstitutions.Itisessentialtomakeasubstantialchangethere,becauseknowledgemustbecomeoneoftheprincipalstrategicprioritiesintheadministrativesystemofMontenegroandintheMontenegrinsocietyingeneral.Particularlyinthecomingyearstheaccentwillhavetobeputonadditionalfunctionalcivilservicetraininginsome»horizontal«areas(»Europeanissues«,management,administrativeprocedures,publicfinancesandtheexecutionofthebudget,elaborationofqualitylegalregulations,foreignlanguagecourses,etc.)Alongwithallthis,ithastobeconsideredthatmoredevelopedcountriesprovidefinancialresourcesfortheadditionalfunctionalcivilservicetrainingthatreachtheextentofapprox.2–6%ofsalariesofemployeesintheadministration.Equallyimportanttostateisthatinthesecountriesthemodeloffinancingisacombinedone.Thismeansthatthefinancingsystemisneitherentirelydecentralized(ase.g.inSlovenia),norentirelycentralized.The»combined«systemactuallymeansthattheadministrativeauthoritiesdisposethemselveswithapartoftheresourcesforadditionalfunctionaltrainingoftheircivilservants(they“buytheknowledge”onthetrainingmarketwithit,regardlessofwhotheconcretesupplierofthisknowledge–apersonoftheprivateorthepubliclaw-is),andontheotherhand,apartoftheseresourcesforthispurposearecentralized.Theotherpartoftheseresourcesisatthedisposaloftheinstitutionprovidingadditionalfunctionalcivilservicetraining(accordingtoguidelinesandadjustmentsofthecurriculaatthementionedadvisoryinter-ministe-rialbody).Inthiswaythegovernmenthasaninstrumenttopreventthegravestdeficienciesintheadministrativesystem–deficiencies,whichcanbepreventedbyadditionalfunctionaltrainingofemployees.Theadvantageofthis(combined)systemisthattheadministrativeauthori-tiesstilldisposethemselveswithpartoftheresourcesforthispurposeandcovertheirspecificneedsforadditionalfunctionaltraining,whileapartoftheseresourcesisusedfortheexecutionofthesaid»horizontal«functionaltrainingoftheemployees.Thisfacilitatesaplannedtrainingofcivilservantsinmattersthatrequireadditionaltraining,determinedbyadministrativecontrolandbyatrainingneedsanalysis,withaviewtoabetterfunctioningoftheadministration.
Duringtheinitialdevelopmentphaseit ispossibletousearelatively
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uncomplicatedmodeloffinancingtheadditionalfunctionalcivilservicetraining.Theelementsofthismodelarethefollowing:
Theparticipantsof thetrainingpayrelatively lowfees for theirparticipationinseminarsandotherprogrammestothetraininginstitution,
Thetraininginstitutionorganizesandexecutesseminarsandothertrainingprogrammes,whilethelecturersareexpertsfromthead-ministration,highereducationinstitutionsandtheprivatesector,
Thelecturersconcludecontractsontheexecutionoftrainingpro-grammeswiththetraininginstitution.
TheabovepresentedrelativelysimplesystemwasusedinSloveniaintheinceptionphase,whileintherecentyearsashifttowardstheaforemen-tionedso-called»combined«financingsystemhasbeenconsidered.
InaccordancewiththenewLawonCivilServantsandStateEmployees,itisevidentthatadecentralizedfinancingmodelhasbeenadoptedinMon-tenegro,sincethelawdeterminesthat»theexpensesoftrainingofacivilservantorstateemployeeshallbebornebythestateauthority«andthesameappliestothebearingofexpensesoftheso-called»specialtraining«withinstateauthorities.�2ThismeansthattheparticipationofcivilservantsintrainingprogrammesdeterminedbytheHRMAwillbeprovidedbytheindividualstateauthorities,respectivelytheseauthoritieswillalsobearthetrainingexpensesfortheiremployees.Fromthisaspectitcanbeascertainedthatthissystemrequirementhasalsobeenmet(ofcourse,italsohastobeascertainedwhichamountoftheresourceswillbeplannedandactuallyallocatedbythestateauthoritiesforthetrainingoftheiremployees).Inthenextfewyears,foreigndonationswillcertainlycontinuetobeasignificantfactor,asthebudgetresourcesareverylimited.
Conclusion
Atthismomentalmostalltheabovementionedminimumrequirementsforapermanentfunctionalcivilservicetraining»system«havebeenmet
�2 SeeArticles9�and94oftheLawonCivilServantsandStateEmployees.
�7PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
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inMontenegro.Thereforeitisnecessarytoadoptassoonaspossibleacertaingovernmentalstrategy,i.e.prepareacurriculumoffunctionalcivilservicetraining,wherebyallnecessaryrequirementsfortheexistenceofthissystemwillbemet.Thisshouldbefollowedbytheconcreterealiza-tionoftheadoptedcurriculumandthesubsequentmaintenanceofthissystemaswellasitsqualitativeandquantitativedevelopment.
Briefly,thefollowinghasyettobeprovidedfortheestablishmentandbeginningoffunctioningofthissystem:
Adoptionofanadequategovernmentalstrategyrespectivelyfunctionalcivilservicetrainingcurriculum,
Selectionofanappropriatemodelofpermanentfunctionalcivilservicetraining(trainingtobeintendedforthehighestcivilservicestructuresinthefirstplace,orevenlyforallcivilservantsandstateemployees)
Determinetheamountofresourcestobeallocatedforthispurpose(theseresourcesaretobeplannedwithintheindividualstateauthori-tieswhenplanningthestatebudgetforthefollowingyear),
Inaddition,itwillbenecessarytoclearlyaspossiblelinktheper-manentfunctionaltrainingofcivilservantswiththesystemoftheirpromotion(e.g.bymeansofprovisionsinlegalregulationsstipulatingthatpromotionisdirectlyconditionedwithpreviouslycompletedadditionalfunctionaltrainingandalike).
Finally,thequestionis:howshouldthefutureMontenegrinpermanentfunctionalcivilservicetrainingsystembedesigned?
2.6. Which elements should be particularly emphasized in the Law on Civil Servants and State Employees with regard to this area?
Withinthenewsystem,theinstitutionprovidingadditionalfunctionalcivilservicetraining–theHumanResourcesManagementAuthority–willhavetoprofessionallyperformprimarilythefollowingtasks:
�8 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
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• Continuouslyperformperiodic trainingneedsanalyseswithregardtomattersrelatingtogeneral(»horizontal«)civilservicetrainingprogrammes(performperiodicTNAsbasedonthepreviouslyadoptedmethodology)
• Preparei.e.determineannualorlongerperiodgeneralcivilservicetrainingcurricula��
• Organizetherealizationofthegeneralcivilservicetrainingprogramme
• Evaluatetheeffectivenessofrealizationofthegeneralcivilservicetrainingprogrammeandcontinuouslyadjustthecontentsofthegeneraltrainingprogrammeaccordingtotheseevaluations.
Consideringalltheabovestated,theconclusionisthatpermanentfunc-tionalcivilservicetrainingshouldbetreatedasanextremelyimportantelementinthepublicadministrationreformprocess.Thereforeithastobepreventedthatthismechanismbetreatedasanunnecessaryexpenditure,thismattermustnotbeapproachedonanadhocbasisandbeisolatedfromotherconstituentelementsofthehumanresourcesmanagementanddevelopmentsystemintheadministrativesystemofthestate.Inthisrespectpermanentfunctionalcivilservicetrainingshouldbedefinedasarightofcivilservantsandtheirobligation.Itisimportanttoensureastablefinancingsystemofthisarea,asitisaninvestmentintoknowledgeandnotanunnecessaryexpenditure.Finally,thecivilservicetrainingsystemshouldbelinkedtothesystemofrewardsandpromotioninthestateadministration.OnlyinthiswayadditionalfunctionaltrainingcansignificantlysupporttheachievementofthesetobjectivesofthePublicAdministrationReforminMontenegro�4.
�� ObligationunderArticle9�oftheLawonCivilServantsandStateEmployees.�4 CompareintheSIGMApublication»CountryProfilesofCivilServiceTraining
Systems«,ibidem,p.19.
NEEDS ANALYSIS FOR FUNCTIONAL TRAINING OF CIVIL SERVANTS AND
STATE EMPLOYEES
(2003/2004 – FACTUAL ANALYSIS)
40 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
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41PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
NeedsAnalysisforFunctionalTrainingofCivilServantsandStateEmployees
3. NEEDS ANALYSIS FOR FUNCTIONAL TRAINING OF CIVIL SERVANTS AND STATE EMPLOYEES
(2003/2004 – FACTUAL ANALYSIS)
3.1. Introduction
Atthebeginningofthe»PARiM-2«Project,ananalysisofthefactualma-terialcollectedduringtheimplementationofthe»PARIM-1«Projectwasexecuted.Theresearchincluded�5stateadministrationauthoritiesatthecentrallevel,whoserepresentativesfilledapreviouslypreparedquestion-naire,whileinaddition,theprojectteamconductedaseriesofinterviewswiththecivilservantsandstateemployeesworkinginthevariousstateauthorities.Therelativelysmallsample(�5stateauthorities)representsacertainmethodologicalshortcomingofthisanalysis,despitethefactthatitcomprisedalmostallauthoritieswithinthestateadministrationsystemofMontenegro.Acertainnumberofstateadministrationauthoritiesfailedtodelivercompleteanswerstoallquestions,whichinconsequencereducestoacertainextentthequalityoftheachievedresults.
Theobtaineddatahavebeenenteredinadatabaseandaspecialanalysishasbeencarriedoutsubsequently.Forthenominalvariables,adescriptiveanalysisaswellasacalculationoffrequencies(descriptivesandfrequen-cies)hasbeenmade.Aspartofthedescriptiveanalysis,thefollowingmeasureshavebeencalculated:sum�5,valueandarithmeticmean�6.Forordinalvariables,thefrequencieshavebeencalculated(theappearancefrequencyofaunitunderobservationinthesample).TheSPSS(Statisti-calPackageforSocialSciences)hasbeenappliedforthepreparationoftheanalysis.
�5 Thesumisameasurerepresentingthetotalofallvaluesvariableinthesample.�6 Thearithmeticmeanisameasureofcentraltendencyandcalculatestheaveragevalue
ofallelementsinthesample.
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3.2. Educational structure of personnel within the state authorities included in the Training Needs Analysis
Thesituationon1stJuly200�withrespecttotheeducationoftheperson-nelintheanalyzedministriesandotherstateadministrationauthoritieswasasfollows:6ministerswereholdersofaPhDdegree,1ministerhadapostgraduatedegree,1hadcompletedaspecialization,9ministershadauniversitydegree,whileothereducationallevelsonthispositionwerenotrepresentedintheprocessedmaterial.
Thenextpositionisthatoftheheads of other state administration au-thorities,whereinthementionedperiodtherewas1headofsuchanauthoritywhohadaPhDdegree,onehadapostgraduatedegree,14hadauniversitydegreeand2hadahighereducationdegree(2-yearstudy).Theothereducationallevelshavenotbeenrepresentedonthisposition,wherebyithastobenotedthatonly18answerstothisquestioninthequestionnaireswerereceived.
Thepositionofsecretary-general of an authoritywasfilledby2postgradu-atedegreeholdersand1�individualswithuniversitydegree.
Thepositionofassistant to the head of a state administration authority wasfilledby�PhDdegreeholders,6postgraduatedegreeholders,1specializationinterneeand57individualswithuniversitydegree.Thetotalnumberofcivilservantsonthispositionwas76.
Thepositionofhead of an organizational unit wasfilledby5postgraduatedegreeholders,�specializationinternees,126individualswithuniversitydegree,�withhighereducationand4withsecondaryeducation,whichmakesatotalof141individualsonthispositionin�2authoritiesthatreplied.
Thestatusofpermanent employee,accordingtotheobtaineddata,had6PhDdegreeholders,22postgraduatedegreeholders,80specializationinternees,1,9�7individualswithuniversitydegree,6�8individualswith
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highereducation,�.74�individualswithsecondaryeducation,1.�29withvocationalsecondaryeducationand�2withelementaryeducation,whichmakesatotalof8.064employeesonapermanentbasisin�4authoritiesthatrepliedtothisquestion.
Thestatusoftemporary employee,accordingtotheobtaineddata,had:1postgraduatedegreeholder,281universitygraduates,4�individualswithhighereducation,4�2withsecondaryeducation,58withvocationalsecondaryeducation,5�withelementaryeducationand�81individualwithsomeothertypeofeducationinaltogether�4authoritiesthatre-spondedtothisquestion.
3.3. Civil service training curriculum
Acurriculumandtrainingprogramexistedin17,4%oftheauthoritiesthatrepliedtothisquestionnaire.
Theremainingstateauthoritiesspecifiedthefollowingreasonsforthenon-existenceofacivilservicetrainingcurriculum:a)thereisnoneedforsuchcurriculaandtrainingprograms(expressedby21%oftheques-tioned),b)thefinancialsituationdoesn’tallowit(statedby41%ofthequestioned)andc)“other”(�8%oftheanswers).
Chart �: Reasons for the non-existence of a civil service training curriculum
21%
41%
38%no need
other
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3.4. Extension of the training period for trainees
Accordingtothedataobtained,thetotalnumberoftraineeswas:165withuniversitydegree,59withhighereducation,and68withsecondaryeducation–thesenumbersapplyingto2�authoritieshavingreplied.Thetrainees’internshipperiodwasextendedfor80individualswithuniversitydegree,4�individualswithhighereducationandfor�6ofthemwithsecondaryeducation.Thenumberoftraineeswhopassedtheprofessionalexaminthefirstattemptwas94withuniversitydegree,6withhighereducationand65individualswithsecondaryeducation.Thismeansthatsomewhatmorethan50%ofthetraineespassedtheprofessionalexamsuccessfullyinthefirstattempt.
3.5. Additional qualification of personnel
Withregardtoadditionalqualificationofthepersonnelinstateadminis-trationintermsofvariousprofessionalexams,theobtaineddatashowedthat1ministerhadpassedthejudicialexam,2ofthemhadpassedtheprofessionalexamforworkinpublicadministration(in26authoritieshavingrepliedtothisquestion).2headsofstateadministrationauthoritieshadpassedthejudicialexamand10ofthemhadpassedtheprofessionalexamforworkinpublicadministration.�secretaries-generalofministrieshadpassedthejudicialexamand8ofthemhadtheprofessionalexamforworkinpublicadministration.4assistantstotheheadofapublicadministrationauthorityhadpassedthejudicialexam,�7hadpassedtheprofessionalexamforworkinpublicadministrationand2ofthemadifferenttypeofexam.4headsoforganizationalunitshadpassedthejudicialexam,95theprofessionalexamand9ofthemanothertypeofexam.44employeesonapermanentbasishadpassedthejudicialexam,1,678ofthemhadpassedtheprofessionalexamand6ofthemanothertypeofexam.
Thereceivedinformationrelatingtocompletionofadditionalfunctionaltrainingamongthehighestmanagementpersonnel,wasasfollows:one
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ministerattendedtraininginthefieldofEuropeanissues,English,Ger-manandFrenchlanguage.Oneheadofanadministrativeauthorityeachattendedtraininginbudgetmanagementandmethodologicalskills,threetooktrainingincomputerskills,whiletwoattendedanEnglishlanguagecourse.Threesecretaries-generaltoministriesattendedtraininginthefieldofbudgetmanagement,twooftheminfinancialmanagement,oneinprojectmanagementandoneattendedtrainingincomputerliteracy.Oneassistanttotheheadofastateadministrationauthorityeachtooktraininginbudgetmanagement,financialmanagement,managementinpublicadministration,2oftheminprojectmanagement,15tooktrainingincomputerliteracyand9ofthemattendedanEnglishlanguagecourse.Thesedatashowthatthemanagementpersonnelexploitsthepossibilityofadditionalfunctionaltrainingtoarelativelylowextent.
3.6. Which are the most important training areas and foreign languages?
Inlinewiththeobtaineddata,theintervieweesexpressedtheopinionthatthemostimportantareasoftrainingareasfollows:forthepositionofaministeritisplanningofworkandstrategicplanningin55,6%,in11,1%itisorganizationandfunctioningoftheadministration,inanother11,1%itisqualityandefficiencyofworkoftheadministration,whileanother11,1%statedEuropeanissuesandafinal11,1%statedcomputerliteracy.
Chart 2: The most important training areas for the position of a minister
55,6%
11,1%
11,1%
11,1%
11,1%0,0%
planing of work and strat planing
organiz. and functioningof state administration
computer literacy
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Themostsignificantforeignlanguageforministers,headsofstateadminis-trationauthoritiesandforotherofficials/functionaries,secretaries-generaltoministries,forassistantstoheadsofadministrativeauthorities,managers,permanentemployees,employeesonatemporarybasisandfortraineeswastheEnglishlanguage–statedbya100%oftheinterviewees.
Chart 3: The most important language for all positions
100%100%
100%100%
100%100%
100%100%
100%
0%10%20%30%40%50%60%70%80%90%
100%
min
isters
head of s
tate
auth
.
secre
tarie
s-genera
l
assis
tants
to head
s of s
t. auth
.m
anag
ers
perman
ent em
ploye
es
tem
porary
emplo
yees
train
ees
Accordingtotheobtaineddata,themostimportanttrainingareasforthepositionofheadofastateadministrationauthorityis:implementa-tionoflegislation(in7.7%),financialmanagement(in7.7%),planningofworkandstrategicplanning(in7.7%),qualityandefficiencyofpublicadministrationoperation(in15.4%),methodologicalknowledgeforworkintheadministration(in15.4%)andcomputerliteracy(in46.2%).
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Chart 4: The most important training areas for heads of state administra-tion authorities
16,7%
33,3%16,7%
33,3%
implementation of legislation
management in administration
computer skills
Themostimportanttrainingareasforotherofficials(functionaries)isimplementationoflegislation(in16.7%),managementinadministra-tion(in��.�%),qualityandefficiencyofpublicadministrationwork(in16.7%)andcomputerliteracy(in��.�%).
Chart 5: The most important training areas for other officials
9,1%18,2%
45,5%
9,1%
9,1%
9,1%
project management
human resources management
organization of state administration
quality and efficiency
communication skills
computer skills
Themostimportanttrainingareasforsecretaries-generaltoministriesare:projectmanagement(in9.1%),humanresourcesmanagement(in27.�%),organizationofworkinpublicadministration(in45.5%),qual-ityandefficiencyofpublicadministrationwork,communicationandcomputerliteracy(eacharearepresentedby9.1%).
48 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
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Chart 6: The most important training areas for secretaries-general to ministries
5,3%15,8%
5,3%
5,3%
5,3%21,1%
10,5%
5,3%
10,5%
15,8%
implementation of legislation
budget management
management in administration
human resources managementplanning of work
organization of state administration
communication skills
methodological skills
computer skills
Themostimportanttrainingareasforassistantstoheadsofstateadmin-istrationauthoritiesare:implementationoflegislation(in5.�%),budgetmanagement(in15.8%),managementinadministration,humanresourcesmanagementandplanningofwork(each5.�%),organizationofworkinpublicadministration(in21.1%),qualityandefficiencyinpublicad-ministrationwork(in10,5%),communication(in5,�%),methodologicalknowledgeforworkinpublicadministration(in10,5%)andcomputerliteracy(in15,8%).
Chart 7: The most important training areas for assistants to heads of state administration authorities
17,6%
5,9%
5,9%
5,9%11,8%11,8%
5,9%
11,8%
5,9%
5,9% 11,8%
implementation of legislation
budget management
management in state administration
human resources management
planning of work
organization of state administration
communication skills
methodological skills
computer skills
49PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
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Themostessentialtrainingareasforothermanagingpersonsinstateadministrationauthoritiesare:implementationoflegislation(in17,6%),budgetmanagement,financialmanagementandmanagementinpublicadministration(in5,9%),humanresourcesmanagementrespectivelyplanning(eachin11,8%ofthecases),organizationofpublicadminis-trationoperation(in5,9%),qualityandefficiencyinpublicadministra-tionoperation(in11,8%),communication(in5,9%)methodologicalknowledgeforworkinpublicadministration(in5,9%)andcomputerliteracy(in11,8%).Chart 8: The most important training areas for other managing persons within state administration authorities
4,3% 4,3%4,3%
4,3%
8,7%
4,3%
4,3%26,2%4,3%
4,3%
13,1%
17,5%
implementation of legislatio n
deciding in administrative procedur e
budget management
project management
planning of wor k
organization of state administration
communication skills
information technology
methodological skills
computer skills
Themostimportanttrainingareasforthecategory“employeesonaper-manentbasis”inpublicadministrationare:implementationoflegislation,decisionmakinginadministrativeprocedure,budgetmanagement,finan-cialmanagement,planningofwork,organizationoftheadministration(eachin4,�%ofthecases),projectmanagement(in8,7%),qualityandefficiencyofpublicadministrationoperation(in26,1%),communicationandcomputerliteracyforstateadministrationauthorities(in4,�%foreach),methodologicalknowledgeforworkinpublicadministration(in1�%)andcomputerliteracy(in17,4%).
50 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
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Chart 9: The most important training areas for “employees on a permanent basis” in state administration
4,3% 4,3%4,3%
4,3%
8,7%
4,3%
4,3%26,2%4,3%
4,3%
13,1%
17,5%
implementation of legislatio n
deciding in administrative procedur e
budget management
project management
planning of wor k
organization of state administration
communication skills
information technology
methodological skills
computer skills
Themostessentialtrainingareasforthecategory„employeesonatem-porarybasis“are:organizationoftheadministration(in16,7%),qualityandefficiencyofworkinpublicadministration(in25%)informationtechnology(in8,�%),methodologicalknowledgeforworkinpublicadministration(in16,7%)andcomputerliteracy(in��,�%).
Chart �0: The most important training areas for „employees on a temporary basis“ in state administration
16,7%
25,0%
8,3%16,7%
33,3%
organiyation of state administration
information technology
methodological skills
computer skills
Themostimportanttrainingareasfortraineesare:implementationoflegislationandorganizationoftheadministration(in7,1%ofthecasesforeach),qualityandefficiencyofworkinpublicadministration(in21,4%),
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informationtechnology(in14,�%),methodologicalknowledgeforworkinpublicadministration(in7,1%)andcomputerliteracy(in42,9%).
Chart ��: The most important training areas for trainees in state adminis-tration
7,1% 7,1%
21,4%
14,3%7,1%
42,9%
implementation of legislatio n
organization of state administration
information technology
methodological skills
computer skills
3.7. Resources allocated for education and training of civil servants and state employees
Chart �2: Planned for education and training (2003/2004)
200 500
59785,5
2580 10000
10000
20000
30000
40000
50000
60000
man
ager
s
per
man
ent
em
plo
yees
tem
por
ary
emp
loye
es
trai
nee s
training
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Chart �3: De facto spent on education and training (2003/2004)
05000
1000015000200002500030000350004000045000
education
training
manager
permanent e
mployees
tem
porary em
ployees
trainees
3.8. Permanent training institutions
ThisquestionwasaimedatdeterminingwhichinstitutionsinMontenegroarethemostsignificantwithregardtotheimplementationofpermanentfunctionaltrainingofprofessionals.Accordingtointerviewswithministers,theseareprivateorganizations(ina100%).Inthecaseofheadsofstateadministrationauthorities,thesearespecificschoolsorothereducationalorganizationsin��,�%andprivateorganizationsaccordingto66,7%oftheinterviewees.Accordingtotheotherofficials,theseareinternationaleducationalorganizationsin50%andprivateorganizationsaccordingtotheother50%oftheinterviewees.
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Chart �4: Private organizations
min
ister
head
of s
tate
aut
horit
yse
cret
ary-
gener
al
assis
tant
to th
e he
ad o
f st.
auth
.m
anag
er
perm
anen
t em
ploye
e
tem
porar
y em
ploye
etra
inee
100%
67%
50% 50%
33% 33%19%
50%
25%
0%10%20%30%40%50%60%70%80%90%
100%
Chart �5: Other educational and training institutions
33,30%
16,70%
33,30%
6,30%
0%5%
10%15%20%25%30%35%
head o
f sta
te au
thorit
y
assis
tant t
o the h
ead o
f st.
auth
.
man
ager
perman
ent em
ploye
e
Asregardssecretaries-generaltoministries,theanswerwasinternationalandprivateorganizations(eachby50%).Inthecaseofassistantstoheadsofstateadministrationauthoritiestheanswerwasinternationalorgani-zations(in50%),otherschoolororganization(in16.7%)andprivateorganizations(in��.�%).Accordingtomanagersinstateadministra-tionauthorities,therepliesincludedtheownunitsfortrainingoftherespectiveauthorityandtheLawFaculty(eachrepresentedby16.7%)
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andsomeotherschoolororganizationaswellasprivateorganizations–eachrepresentedby��.�%inthereplies).
Inthecaseofemployeesonapermanentbasis,theowntrainingunitsandprivateorganizationswererepresentedby18.8%,internationalorganizationsby4�.8%,theLawFaculty,otherschooli.e.organizationand‘other’by6.�%.
3.9. The current civil service training system
Accordingtothereceivedreplies,trainingofcivilservantsandstateemploy-eesisplannedwithinthestateauthoritiesin7�,1%ofthecases.Amid-termtrainingplanisnotmadeatall.Ashort-termtrainingschemeexistsin�4,8%oftheexaminedauthorities.Employeeswhotakechargeoftheirtrainingthemselvesappearin20%oftheexaminedcases.Theplanningrunsattheleveloftheinternalorganizationalunitin65,2%,whiletheprofessionalde-velopmentisplannedforallemployeeswithinthepersonneldepartmentinastateadministrationauthority–in��,�%oftheexaminedcases.
Chart �6: Education and training of personnel
73,10%
0,00%
34,80%
20,00%
65,20%
33,30%
0%10%20%30%40%50%60%70%
training planned in
state
authorit
ies
mid-te
rm tr
aining plan
short-
term
training plan
employees t
ake charg
e of tra
ining...
planning runs i
n the in
tern
al org
. ...
developm. p
lanned in th
e centra
l...
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3.10. Civil service training needs assessment
Aregularandsystematicneedsassessmentregardingeducationandtrain-ingofprofessionalsisperformedinonly�9.1%oftheexaminedcases(i.e.authoritiesthatrenderedareplytothisquestion).Trainingneedsarenotdeterminedintheremaining60.9%,becauseofthefollowing:a)therearenofinancialmeansallocatedforit–statedby75%oftheinterviewees,andfor‘other’reasons(notspecified)–statedby25%.Chart �7: Reasons for non-performance of training needs assessment
0%
75%
25%no need
no resources aliocated
other
Needsforeducationandtrainingofprofessionalsaredeterminedinthefollowingmanner:bymeansofregularannualquestionnairesin25%;superiorscollectinformationin5�.8%;superiorsdetermineemployeestoattendadditionaltrainingin69,2%;theemployeesapplyontheirowninitiativein75%;thehumanresourcesdepartmentproposestheemployeestoattendadditionaltrainingin��,�%oftheexaminedcasesandinternationalorganizationsofferprogramsofadditionalfunctionaltrainingin40%ofthesurveyedcases.
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Chart �8: Education and training needs of professionals
25,00%
53,80%
69,20%75,00%
33,30%40,00%
0%10%20%30%40%50%60%70%80%
regular a
nnual quest.
..
superio
rs colle
ct inf. .
..
superio
rs dete
rmin
e...
emplo
yees’ own in
iti. ..
.
HRM departm
ents
extern
al org
anizatio
ns
3.11. Evaluation of effectiveness of additional training of civil servants and state employees
Asystemforevaluationofthetrainingexistsinonly17.4%ofthesur-veyedauthorities.
Thereasonsforthenon-existenceofatrainingevaluationsystemintheotherauthorities(inmorethan80%)arethefollowing:a)because“thereisnoneedforit”in17,6%ofthecasesandb)“other”intheremaining82.4%.
Chart �9: Reasons for the non-existence of a training evaluation system in an authority
17,6%
82,4%
no need
other
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Theeffectivenessoftrainingofprofessionalsisfollowedupby:theim-mediatesuperior in47.1%;thepersonneldepartment in11,8%;theimplementingauthorityofthetrainingin2�,5%andnobodyin17,6%oftheexaminedcases.
Chart 20: The effectiveness of training is followed up by
47,1%
11,8%
23,5%
17,6%
immediate superior
personnel department
training provider
nobody
Themethodologyusedtoassesstheeffectivenessoftrainingisasfollows:a)conductingaquestionnairein16,7%;b)interviewwiththepersonhavingattendedtrainingin22,2%;c)followupofthesubsequenteffectivenessin27,8%,andd)writtenreportsin11,1%.Theeffectivenessisnotassessedin16,7%and»other«in5,6%oftheexaminedcases.
Chart 2�: The determination of effectiveness of civil service training
16,7%
22,2%
27,8%
11,1%
16,7%5,6%
by interviews
written reports
by questionnaires
no assessment
subsequent follow up of impact
other
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NeedsAnalysisforFunctionalTrainingofCivilServantsandStateEmployees
Thecriteriausedtodeterminetheeffectivenessoftrainingofprofessionalsareasfollows:quantitativein11,8%,qualitativein41,2%,examspassedin29,4%,whiletherearenocriteriain17,6%oftheexaminedcases.
Chart 22: Criteria for evaluation of effectiveness of civil service training
11,8%
41,2%29,4%
17,6%
quantitative
qualitative
exams passed
no criteria
Theacquiredknowledgeisimplementedbymeansoflecturesin��.�%andwritteninformationforotheremployeesin64.�%.
Chart 23: Implementation of the acquired knowledge
33,3%
64,3%
0%
10%
20%
30%
40%
50%
60%
70%
lectures written information
Personswhohaveattendedtrainingareliabletostayintheirrespectiveauthorityaftercompletionofthetraining:foraperiodequivalenttothedurationofthetrainingprogram(in�,7%)orfortwicetheperiodofdurationofthetrainingprogram(in�,7%).Someothertimespanisdeterminedin11,1%ofthecases,whilethereisnosuchobligationineven��,�%oftheexaminedauthorities.
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Chart �4: Obligation after completion of the training process
3,7%
3,7%
11,1%
33,3%33,3%
14,9%period equivalent toduration of trainin g
2 x the period of duratio nof training performedsome other time span
no such obligation
no such obligation
no data available
3.12. Conclusions
Takingintoconsiderationalllimitationsregardingthequalityandquantityoftheobtaineddata,itisyetpossibletodrawsomerelevantconclusionsonthebasisoftheseinformation:
- averysmallnumberofstateadministrationauthoritieshadaspecificplanandprogrammefortrainingoftheirpersonnel(only6administrativeauthoritiesoutof�4questioned),whichleadstotheconclusionthatthisfunctionhasbeengivenlittleattentioninthestateadministrationauthorities(themainreasonforthenon-existenceoftheseplansi.e.programmes,asstatedmostfrequentlybythestateauthorities,wastheexistingeconomicsituation,duetowhichitmakesnosensepreparingsuchprogrammes,astherearenofinancialresourcesfortheimplementationofthesame),
- stateauthoritiesdonotdesignanymid-termplansfortrainingofcivilservantsandstateemployees,
- theneedsforpermanentfunctionalcivilservicetrainingareusuallynotdeterminedinstateadministrationauthorities(suchareplywasobtainedevenin60%ofthesurveyedauthorities),
- themajorityoftheintervieweesrepliedthatthemostimportantforeignlanguageessentialforworkintheadministrativesystem
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istheEnglishlanguage(almostallthemanagingpersonnel),andaswelltrainingincomputerskills,
- somewhatlessthan2%ofthetotalamountofresourcesallocatedforsalariesofpersonnelisallocatedforcivilservicetraining,whichislittleconsideringtheneedforintensivetrainingofthecivilservicepersonnelinMontenegro,
- therearenoadequatetraininginstitutionsinMontenegrothatcouldofferqualityprogrammesforpermanentfunctionalcivilservicetraining(exceptfortraininginforeignlanguagesandcomputerskills),
- theadministrativeauthoritieshavenosystemofevaluationoftheeffectivenessoftrainingofthepersonnel(aftercompletionofseminarsorotherformsofcivilservicetraining).
CONTENT ANALYSIS OF CURRENT LEGISLATION REGULATING THE TASKS OF
STATE AUTHORITIES (BASIS FOR DRAFTING OF A TRAINING CURRICULUM)
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4. CONTENT ANALYSIS OF CURRENT LEGISLATION REGULATING THE TASKS OF STATE AUTHORITIES (BASIS FOR DRAFTING OF A TRAINING CURRICULUM)37
Theaimofthepreparationoftheanalysisoflegalactsregulatingthesocalled”horizontal”(general)tasksofcivilservantsi.e.”horizontal”tasksofpublicadministrationauthoritieswastofacilitatetheexecutionofaqualitytrainingneedsanalysisandlateronaqualitycivilservicetrain-ingcurriculum.ThisanalysisiscomplementarytotheTNAexecutedbymeansofquestionnairescommentedonintheprecedingpartofthispublication.
Whenspeakingaboutthehorizontaltasksperformedbytheadministra-tiveorotherstateauthorities,wehaveinmindallthoseadministrativetaskswhichmoreorlessappearinallorinthemajorityofthepublicadministrationorotherstateauthorities.Or,ifweapplythisstatementtothelevelofanindividualcivilservant,wehaveinmindthosetypicaltasksperformedbythemajorityofcivilservantsatthesamehierarchicallevelorofthesameprofessioninexecutingtheirdailyworkwithinthepublicadministration.
Alegalanalysisofrelevantlawsandotherregulationswasanimportantpreliminaryelementinconductingaproperanalysisofneedsforad-ditionalandfunctionaltrainingofcivilservantsinMontenegro.Otherelementsoftheanalysiswerethefollowing:
• Thementionedresearchbymeansofappropriatequestionnairesthathavebeensenttothevariousstateauthorities(TNA)and
• Executionofinterviewswithinpersonnelandotherdepartmentsinvariousstateauthorities(whichwillbeextendedbymeansof
�7 ThisanalysiswaspreparedduringtheimplementationofthePARiM-1projectin200�,whensomeveryimportantcurrentlegalactswerenotadoptedandenforcedyet.
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permanent“contactpersons”withinalltheauthorities,whohavebeenassignedforliaisonwiththeHumanResourcesManagementAuthority).
Theexecutionof theanalysisofhorizontaladministrativetaskshasdeterminedthecourseofconductingtheresearchontheviewsamongcivilservantsregardingtheirneedsforpermanentfunctionaltrainingononehand,whileontheotherhandthisanalysisenabledaclearerideaoftherealneedsfortrainingofcivilservantswithregardtotheiractualworkingtasksdefinedbypositiveregulations.Inthiswayweavoidedthesituationinwhichthetrainingneedsanalysismightproduceonlyalonglistofdifferent‘’trainingwishes”,i.e.civilservants’subjectiveestimatesregardingadditionaltraining.
Thebasicmethodologicalinstrumenttodeterminewhethertoincludeacertainhorizontalfunctioni.e.taskinthesubsequentanalysiswasthequestion“Doestheobservedfunction/taskappearinalloratleastinthemajorityofthepublicadministrationauthorities?”.Ifthereplywasposi-tive,thefunctioni.e.taskwasincludedinthelist,otherwiseitwasnot.
TheneedforananalysisofhorizontaltasksoriginatedfromthestrategicdeterminationtoprepareastartingpointfortheestablishmentofacivilservicetraininginstitutionwithintheMontenegrinstateadministra-tion.Thisinstitutionistoprovideinparticulartheknowledgeandskillsthatareofsignificancetothemajorityofauthorities,i.e.civilservants(“horizontaltrainingcontents”).Suchaninstitutionhasbeenestablished(theHumanResourcesManagementAuthority)anditisabouttostartitsactivitiesinthisarea�8.
Thelegalanalysiscomprised22lawsandothergenerallegalactsdeter-miningthemostimportantareasofoperationofthestateadministrationsystem,aswellasthehorizontalfunctionswithinthestateadministra-tionauthorities,respectivelytasksperformedbycivilservantsandstateemployees.
�8 SeeArticle4oftheRuleBookonInternalOrganizationandSystematizationoftheHumanResourcesManagementAuthority.
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Thenextimportantstartingpointofthisanalysiswasthefactthatsomeofthefunctions,i.e.tasksaredeterminedbylawsandotherlegalactsasexplicit,whereassomeotherscanbeascertainedonlyindirectly,i.e.implicitly–byassociatingcertaintasksintologicalentities.Thiswasatthesametimeastartingpointforthefollowingmethodologi-callyrelevantfinding:thehorizontalfunctionsandtaskscomprisedintheanalysisappearedatdifferentlevelsofgenerality(horizontalappearance).Thismeansforinstancethatacertainhorizontalfunction,i.e.task,isconstitutedbyseveraldifferent(interconnected)functionsortasks.
Bearinginmindtheaimofthisanalysis,itisclearthatthisinquirywasfocusedonthefunctionsoftheadministrativesystemofMontenegro.Theanalysiscomprisedthosehorizontaltasksthatappearinallorinthemajorityofstateadministrationauthorities(suchashumanresourcesmanagement,financialmanagement,draftingoflegalactsandalike).Ontheotherhand,itmeansthattheaimofthisanalysisisnottotheascertainmentofsomegeneraltasksthatareperformedbyadministrativeauthoritiesforthebenefitofprivateorganizations(suchascertification,issuingoflicences,andsimilar)orindividualsi.e.citizens(suchaskeep-ingregisters,issuingpermissions).
Atanyrate,itcanbesaidthatanimportanthorizontalfunctioni.e.task,fromtheaspectofthisinquiry,istheaccurateandlawfulmannerofprepa-rationandissuanceofadministrativeactsandotherconcretedecisions,orthefunctionoflawfulinterpretationoflegalregulations.
Thelegalanalysiswill,asmentionedbefore,befocusedonthefollowingmainspheresofthestateadministrationsystem:
• Stateadministration,• Generalandprocedurallaws,• Otherlegalactshavinganimpactontheworkofallstateadmin-
istrationauthoritiesi.e.civilservants.
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Sphere of the state administration
• LawonStateAdministration(OfficialJournaloftheRepublicofMontenegro,No.�8/0�)
• LawonCivilServants(OfficialJournaloftheRepublicofMon-tenegro,No.45/91,50/91)
• LawonCivilServantsandStateEmployees(seconddraft,22May,200�)
• LawonSalariesofCivilServantsandStateEmployees(seconddraft,21July,200�)
• RegulationonOfficeWorkinStateAdministrationAuthorities(OfficialJournaloftheRepublicofMontenegro,No.61/92)
• RegulationonTitlesofTaskGroupsandPrinciplesforInternalOrganizationofStateAdministrationAuthorities,OfficialRanks,ProfessionsandPromotionofCivilServants(OfficialJournaloftheRepublicofMontenegro,No.9/92,26/96)
• RegulationonRecognitionsofCivilServantsinStateAdministra-tionAuthorities(OfficialJournaloftheRepublicofMontenegro,No.21/96)
• RegulationontheGovernmentoftheRepublicMontenegro(OfficialJournaloftheRepublicofMontenegro,No.15/94,and4/97)
• RegulationontheOrganizationandMethodofWorkoftheStateAdministration(OfficialJournaloftheRepublicofMontenegro,No.8/9�,��/01,09/0�,19/0�)
• RulesofProcedureoftheParliamentoftheRepublicofMontene-gro(OfficialJournaloftheRepublicofMontenegro,No.�7/96,16/97,24/97)
• RulesofProcedureoftheGovernmentoftheRepublicofMon-tenegro(OfficialJournaloftheRepublicofMontenegro,No.45/01)
• RulesconcerningtheActingoftheStateAdministrativeAuthoritiestowardCitizens(OfficialJournaloftheRepublicofMontenegro,No.1/9�)
• RuleBookonthePrinciplesandProcedureofCompletionandAssessmentofCivilServants’ProbationaryWork(OfficialJournaloftheRepublicofMontenegro,No.18/96)
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• RuleBookonTrainingofTrainees,ProfessionalExamandAddi-tionalTrainingofCivilServants(OfficialJournaloftheRepublicofMontenegro,No.18/9�,�1/95,5�/01)
• InstructionontheUniformPrincipleforInternalOrganizationandSystematizationofStateAdministrationAuthorities(OfficialJournaloftheRepublicofMontenegro,No.11/92)
General tasks and procedural legislation
1.GeneralAdministrativeProceduresAct(OfficialJournaloftheFederalRepublicofYugoslavia,No.��/97,�1/01)
2.LawonAdministrativeDispute(OfficialJournaloftheFederalRepublicofYugoslavia,No.46/96)
�.LawonInspectionControl(OfficialJournaloftheRepublicofMontenegro,No.�9/0�)
4.LawontheBudgetoftheRepublicofMontenegro(OfficialJournaloftheRepublicofMontenegro,No.40/01and44/01)
5.LawontheConstitutionalCourt(OfficialJournaloftheRepublicofMontenegro,No.21/9�)
6.LawontheProtectorofHumanRightsandFreedoms(OfficialJournaloftheRepublicofMontenegro,No.41/0�)
7.InstructionontheWorkoftheStateTreasury(OfficialJournaloftheRepublicofMontenegro,No.64/01).
Mainfindings–listofhorizontaltasksinindividuallegalsources
4.1. SPHERE OF THE STATE ADMINISTRATION
The Law on State Administration(Official Journal of the Republic of Montenegro, No. 38/03)
EXPLICITLY
− decision-makingwithinadministrativeauthoritiesonadministrativematters(applicationofthegeneralandspecialadministrativeproce-
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dures,supervisionoftheexecutionoflegalregulationsconcerningadministrativeprocedures)(general;Articles19,20,21)
− preparationofmaterials fortheGovernmentof theRepublicofMontenegro:
o laws,o otherregulationsandgenerallegalacts,o reportsandothermaterial,aswellaso performanceofotherprofessional tasksorderedbythe
GovernmentoftheRepublicofMontenegrotoanadminis-trativeauthority(Articles�8,�9,40,60,61,62,6�)
− executioni.e.implementationoflaws,otherregulationsandlegalactsoftheParliament,aswellasregulationsandlegalactsoftheGovernmentoftheRepublicofMontenegro(Articles11,14,15,�8,�9,40,60,61,62,6�,7�)
o preparationandissuingofadministrativeregulations,o preparationandissuingofadministrativeandotherlegal
acts(regulations,instructions,decisionsandother),− executionofadministrativetasks,e.g.participationinpolicymak-
ing,executivetasks,inspectioncontrol,monitoring,developmentaltasks,facilitatingpublicservices(Articles11,12,1�,27)
− executionof inspectioncontrolovertheimplementationof laws(Articles11,15,16,17,18,19)
− ensuringtheperformanceofaffairsofpublicinterestthatarewithinthesphereofcompetenceofthecentralgovernmentandprovisionofcontroloverthelegalityofoperation,aswellassupervisionoftheprofessionalperformanceoftasksofpublicinterest(Articles11,15,16,18,2�,26)
− promotionofeconomic,social,cultural,ecological,andgeneralsocialdevelopment(Article27)
− managementandrepresentationofanadministravieauthority(Ar-ticles41,42,4�,44,45,46)
− supervisionofthelegalityofworkoflocalgovernmentauthoritiesandsupervisionoftheappropriatenessandprofessionalismofworkoflocalself-governmentauthoritiesinthecaseoftransferredcom-petencies(Article�4)
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− decidingonappealsinadministrativeproceduresinthefirstandsecondinstance(Article70)
− submissionofreportstotheGovernmentoftheRepublicofMonte-negroontheconditionsinacertainareathatisunderthecompetenceoftherespectiveauthority,submissionofreportsontheexecutioni.e.applicationoflawsandotherlegalactsaswellasgovernmentalinstructions(Articles72,7�,74)
− cooperationwithotherministriesandotheradministrativeauthori-ties(Articles65,66,67,68,69)
− cooperationwiththecourts,localself-government,publicinstitutions,non-governmentalorganizations(Articles75,76,77,78,79,80)
− dataprotectionanddatasecuritywithinadministrativeauthorities(Article7�)
− collection,processing,arrangementandpreparationofdataandinformationwithinstateadministrationauthorities(Article2�)
IMLICITLY
− interpretationoflegalactsbeforeissuingdecisionsandotherconcreteadministrativeacts
− knowledgeonandperformanceofactivitiesofthelegislativei.e.normativeprocedure
− knowledgeonandimplementationoforganizationofworkinad-ministrativeauthorities
− implementationofmodernmanagementmethodsinadministrativeauthorities
The Law on Civil Servants(Official Journal of the Republic of Montenegro,
No. 45/91, 50/91)
EKSPLICITLY
− conditionsofemploymentofcivilservantsandarrangementofwork-ingrelationswithinthestateadministration(Articles4,5)
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− testingperiodandpreliminarytestingofworkingabilitiesoftheemployeesbeforestartingtoworkwithinthestateadministration(beforethefirstemployment)(Article5)
− opencompetition–concurs(Article6)− apprentices,apprenticeshiptrainingandperiod(Articles10-12,
6�)− arrangementofworkingrelationsandconditionsforreplacement
civilservantstoanotherpost(Articles1�-15,61)− rearrangementoftheemployeesandconclusionofworkingrelations
foralimitedperiod(apartofthepersonnelfunctionwithinthestateauthorities)(Article16)
− decision-makingandissuingofthedecisionsconcerningworkingrelations(Articles1�,5�,54)
− decision-makingoftherightsandobligationsofcivilservants(Articles17-�1)
− disciplineresponsibilitiesofcivilservants,disciplinemeasure,offenceandprocedures;executionoftheprocedureoffinding(out)inap-propriatenessofanemployeeandoffinding(out)thefacts(Articles�2-41)
− appointmentandadvancementofcivilservants,conditionsandwayofadvancementofcivilservants(Articles44,45)
− professionalqualificationofcivilservants(Article44)− assessmentofperformanceoftheemployeeswithinthestateadmin-
istration(performanceappraisalasapartofthepersonnelfunctionwithinthestateauthorities)(Article45)
− keepingandmaintainingofthepersonnelrecordsandotherdatawhichareneededfortheexecutionofthepersonnelpolicywithinthestateauthorities(personnelevidencesasapartofthepersonnelfunctionwithinthestateauthorities)(Article46)
− determinationoftheworkingtimeforcivilservantsandemployeeswithinthepublicadministration(Articles47-50)
− arrangementofworkingrelationsandsalariesanddeterminationofsubstitutesandotherincomesofthecivilservants(Articles51-52,61)
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− civilservants’complainstotheadministrativeinspection(Article55)
− cancellationoftheemployment(Articles57-6�)− civilservants’obligationtopasstheprescribedproficiencyexam
(Article58)− determinationoftheemploymentpolicyanddecision-makingabout
replacementsofemployeesforthereasonsofworkreorganisationandrationalizationofoperationofstateauthorities(Article62)
IMPLICITLY
− determinationofappropriatei.e.rational internalorganizationwithintheauthoritiesofthestateadministration
− executionofthetrainingfunctionforcivilservants− obligationtoundergotheprofessionaltraining–employeesofthe
authoritiesofthestateadministrationduringtheworkingrelation− co-operationwithindifferentcommissionsandotherworkingbodies− executionoftheapprenticeshiptrainingwithintheauthoritiesof
thestateadministration− decision-makingofworkobligationsoftheemployeeswithinthe
authoritiesofthestateadministration− disciplinaryresponsibilitywithinthestateadministration(conduct-
ingthedisciplinaryprocedures− protectionofrightsoftheemployeeswithinthestateauthorities
The Law on Civil Servants and State Employees(second draft, 22 May, 2003)
EXPLICITLY
− familiaritywiththecontentsoftheLawonCivilServantsandStateEmployees–workingmaterialasawhole
− familiaritywithprovisionsconcerningtherightsandobligationsofcivilservants(Article1)
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− determinationandexecutionoftasksofthecivilservantsandstateemployees(Article�)
− functioningofthetradeunionwithinthestateadministrationandadministrativeauthorities(Article10)
− codexofethicsandresponsibility(Articles11,12)− rightsforcareerdevelopment(Article1�)− obligationofpreparingtheactontheinternalactonthesystematisa-
tionofworkingplaceswithinanauthorityofthepubliclaw(Articles18,21)
− employmentprocedure–conditions,publicconcourse,selection,probationperiod(Articles17-��,40)
− parttimeemployment(Article�4)− classificationofcivilservantsandstateemployees(ChapterIV)− workingplaces–conditionforthecivilservantsandstateemployees
(Article�5)− appointmentsofcivilservantstothepositionsfortheexecutionof
specialauthorizationsandresponsibilities–classification,conditions,procedureofanappointmentanddisplacement(Articles�6-�9,46)
− classificationandappointmentoftheofcivilservants intotitles(Articles40,41)
− classificationofstateemployees(Article42)− conditionsfornominating/obtainingthetitlesofcivilservants(Ar-
ticles4�,44)− rightsandobligationspfcivilservantsandstateemployees(Chapter
V)− executionofthetasksconcerninginstructionsanddirections(Article
47)− executionoftheextratasks(Articles48-52)− teamworkandintroductionofnewworkingmethods(Article51)− humanresourcemanagementfunction(Article58)− nominationandresponsibilitiesofthecommissionforcomplains
(Articles59,60,61)− civilservants’andstateemployees’responsibilities(ChapterVII)
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− determinationoftheworkingorderanddisciplineresponsibilitiesofthecivilservantsandstateemployees(Articles62-6�)
− disciplineprocedures,disciplinecommissionanddecision-makingconcerningthedisciplinaryresponsibilityofemployees(Articles64-7�)
− temporaryprohibitionofwork(Articles74-76)− disciplinaryresponsibilityofthecivilservantsandstateemployees
anddecision-makingconcerningthedisciplinaryresponsibilityofemployees(Articles77-81)
− transfersofthecivilservantsandstateemployees(ChapterVIII)− condition,reasonsandlimitationsoftransfer,procedureinthecase
oftransfersduetoworkrequirements(Articles8�-86)− terminationofemployment(ChapterIX)− reasonsforcancellationofthecontractofemployment,cancellation
oftheemploymentonthepartofemployeroremployees,cancella-tionofthecontractofemploymentforthereasonsofservice,e.g.reorganisational,structionalorfinancialreasons,reductioninthescopeofpublictasks(Articles88-91)
− promotionperiod,conditionsforpromotionandstandardsofevalu-ation(Articles97-100)
− assessmentof theofficials,promotionsandacknowledgements(ChapterX)
− educationandtrainingofthecivilservantsandstateemployees(ChapterXII)
− obtaininganadditionalformaleducation(Article112)− obtaininganadditionalfunctionalandspecialknowledge(Article
11�)− additionalin–servicetraining(Article11�)− in–servicetrainingprogram(Article114)− monitoringofthecareerandprofessionalismattheworkofthecivil
servantsandstateemployees(Article115)− periodicaltestingofthetheoreticalandpracticalknowledgeofthe
civilservantsandstateemployees(Article115)− passinganappropriateproficiencyexam(Articles45,116-118)− apprenticeandapprenticeshipperiod(Articles119-120,122)
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− apprenticeshiptrainingprogram(Articles121)− scholarshipforgiftedpupils(Article12�)
IMPLICITLY
− obligationofinformingthegeneralpublicaboutexecutionofpub-lictasksandabouttheresultsofsuchwork,aswellasobligationofinformingtheusersaboutchangesintheoperationofanauthorityofthepublicadministration
− obligationofkeepingthepersonalrecordforeachemployeewithintheauthorityofthepubliclaw
− providingofdataonthefilledpersonalrecordstotheministries− preparationofgenerallegalactswhichaffectworkingrelationswithin
theauthorityofthepubliclaw− determinationoftitleswithinthestateadministration− executionofadvisory,organizational,andprojecttasks− determinationofthesystematizationofworkingplaceswithinthe
stateadministration− determinationoftitlesandpositionswithinthestateadministra-
tion− issuingoftheactsconcerningthefirstsystematizationaccordingto
thisLaw− executionoftherationalizationofoperationwithintheauthoritiesof
thepubliclaw,onthegroundofthefirstsystematizationofworkingplaces
− introductionofnewworkingmethodswithintheauthoritiesofthepubliclaw
− introductionofdifferentmethodsofthesupervisionofwork− determinationoftheemploymentpolicyanddecision-makingabout
replacementsofemployeesforthereasonsofwork− decision-makingontherationalizationofoperationofauthoritiesof
thepubliclaw− determinationofcriteriaandstandardsformeasuringtheperformance
ofemployeeswithintheauthoritiesofthepubliclaw− co-ordinationoftheexecutionofpublictasks
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− leadershipoftheinternalorganizationalunitsoftheauthoritiesofthepubliclaw
− executionoftheauthorizationofdeputizinghigherofficials(civilservants)
− conclusionofworkingrelationwithintheauthoritiesofthepubliclaw(conclusionoftheemploymentcontracts)
− executionofadvisorytasks− executionoforganizationaltasks− executionofprojecttasks(teamwork)− decision-makingconcerningtheemploymentwithintheauthorities
ofthepubliclaw− preparationofemploymentplanswithintheauthoritiesofthepublic
law− collectingdataaboutpossiblecandidatesforconcludingtheworking
relation− nominationofthecommissionforperformingaspecialselecting
procedureforchoosingthecandidateforthenewworkingplacewithintheauthoritiesofthepubliclaw
− obligationofusinganewprofessionalknowledgeintheworkofcivilservantswithintheauthoritiesofthepubliclaw
− operationinaccordancewiththeinternalrulesoftheworkingorderanddiscipline,whicharedeterminedbytheemployer
− executionofworkingoperationswhichbelongtoaworkingplace(toacertainjobdescription)
− providingoftheoralinstructions(orderingofthework)− obligationofinformingthedirectsuperioraboutessentialcircum-
stanceswhichinfluenceorcouldinfluencetheexecutionofhisworkingoperation
− obligationofanemployertooverviewtheworkofemployeesandenablethosewhoareassessedasexcellentonestotakeanadditionaleducation
− providingtheenforcementoftherightsandobligationsoftheem-ployeesconcerningtheadditionalprofessionaltrainingandfunctionalperfection
− conclusionofthecontractsaboutanadditionaleducation− passingtheprescribedproficiencyexam
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− obligationofassessingoftheworkingandprofessionalqualitiesofemployees
− findingoutconditionsanddecisionmakingonthepromotionofemployeeswithinthepublicadministration
− executionoftheprocedureoffinding(out)inappropriatenessofanemployeeandoffinding(out)thefacts
− reasonableusageofprovisionsofthegeneraladministrativeproce-dureformakingdecisionsaboutthedisciplinaryresponsibilityofemployees
− leadingtheadministrativedisputesinconnectionwithworkingrela-tionswithinthepublicadministration
− decision-makingongivingnoticeoftheemploymentcontract− replacementofemployeestoanotherpost− executionoftheinspectionforthecivilservantssystem− preparationofwrittenanalysesoftheextentsofworkingcompetences
fromthepointofviewofneededexecutors− obligationofkeepingtheofficialandthebusinesssecret
The Law on Salaries of Civil Servants and State Employees (second draft, 21 July, 2003)
EXPLICITLY
− familiaritywiththecontentsoftheLawonsalarysystemofcivilservantsandstateemployees(workingmaterialasawhole)
− methodofdeterminationandpaymentofsalarieswithintheminis-triesandadministrativeauthorities(Articles�,5)
− determinationofcriteriaandstandardsformeasuringtheperformanceofemployeeswithintheministriesandadministrativeauthorities(Article6)
− performanceoftheorganizational,financial,accountancy,informa-tion,professionally–technicalandotherauxiliaryjobs(Article6)
− determinationofsalariesandotherincomesconcerningthecivilservants’relations(Articles7-10)
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− obligationofpreparingtheinternalactonthesystematizationofworkingplaceswithintheministriesandadministrativeauthorities(Articles�,11)
− knowledgeoftheInstructionissuedbytheMinisterofFinancecon-cerningstatementsofincomesandpaymentsincludingownincomesoftheusersofthestatebudget(Article1�)
− keepingoftheemployees’recorddeterminationandpaymentofsala-rieswithintheobligationofministriesandadministrativeauthorities(Article20)
− inclusionoffunctionsandworkingplacesoftheemployeesintosal-arybrackets(Article16)
− determinationofsubstitutesandotherincomesoftheemployees(Article18)
− executionoftheinspectionservice(Article22)− leadingtheadministrativedisputesinconnectionwithsalariesof
civilservantsandstateemployees(Article19)
IMPLICITLY
− keepingofthepersonnelrecords− promotionofemployeeswithintheministriesandadministrative
authorities− checkingoftheconditionsforthepromotionofemployeeswithin
theministriesandadministrativeauthorities− preparationoftheactonorganizationandsystematizationofworking
placeswithintheministriesandadministrativeauthorities− classificationofworkingplacesintotariffgroupsandsalarybrack-
ets− responsibilityforlegality,justification,andappropriatepurposefor
spendingthebudgetarymeans− keepingtherecordsandpreparationofthefinancialreportstothe
MinistryofFinance− knowledgeofthelawonexecutionofthestatebudget− executionoftheadministrativeproceduresandknowledgeofthe
GeneralAdministrativeProcedureActandregulationswhichde-terminespecialadministrativeprocedures
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Regulation on Office Work in State Administration Authorities
(Official Journal of the Republic of Montenegro, No. 61/92)
EXPLICITLY
− executionofofficeoperation(generalactivities)–keepingofrecords,classification,takingcareofterms,resolvingtheadministrativemat-tersandkeepingarchivesofthedocumentarymaterialwithintheadministrativeauthorities,dealingwithsecretmatters(Articles2,7-9,11,12,16,17)
− makingdocumentsconcerningworkwithintheadministrativeau-thorities(Articles2,7-9,11)
− keepingofofficialrecordsandfileswithintheadministrativeauthori-ties(Articles2,18,19,20,21)
− acceptance,inscriptionofadministrativemattersanddocumentsintotheadministrativerecord,arrangementofpostanddocuments(Articles2,12-14)
− deliveryofpost(Article15)− protectionitemsanddocuments(Articles16,17)− protectionofstate,military,business/officialsecrets(Article10)− executionofdisciplinaryprocedureswithintheadministrativeau-
thorities(Article5�)
IMPLICITLY
− computerliteracy− knowledgeofprovisionsoftheexecutiveregulationsissuedonthe
basisoftheneedforprotectionofthenaturalandculturalheritage
79PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ContentAnalysisofCurrentLegislationRegulatingtheTasksofStateAuthorities
Regulation on Names of Groups of Tasks and Principles for Internal Organization of State Administration Authorities, Official Ranks, Professions and Promotion of Civil Servants
(Official Journal of the Republic of Montenegro, No. 9/92, 26/96)
EXPLICITLY
− groupsoftasksofstateadministrationauthorities:administrative-normativetasks–determineanddefinesystemmeasuresandlegisla-tiveproceduresinpolicyimplementation,problemsolving,foresightconsequencesinpolicyimplementation,strategicplanning,prepara-tionoflawsandotherregulationsandgenerallegalacts,preparationstatebudget(Articles2,�)
− executiontasks–executionandimplementationofthelawsandotherregulations,monitoringandcontrol,assessingandassuringconditionforexecutionoflawandotherregulations;executionadministrativeprocedureanddecisionmakingwithintheadministrativeprocedure(Articles2,4)
− controltasks–controlovergenerallawandotherregulationsexecu-tion(Articles2,5)
− researchandscientifictasks–differentprofessional,technicalandscientificknowledge,e.g.projectmanagement;automation,moderni-sationandimplementationofinformationsystems,archivaltasks,librarianship,publishing,journalism,translating,readmanuscriptsforpublisher,workingoutmethodologies,instructionsandstandardsetting;tasksinthefieldsofstatistics,hydrometeorology,seismologyandgeology,geodetictasks;collecting,testing,checking,arrangingandprocessingthedata(Articles2,6)
− officetasks–knowledgeandexecutionoftheproceduresofofficeoperationwithinthepublicadministration;executionoftasksofthemainofficewithinanauthorityofthepublicadministration;acceptanceofthedocumentsandrequests,invitationstothepartiesofanadministrativeprocedure;classificationofthematerialandadministrative;
80 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ContentAnalysisofCurrentLegislationRegulatingtheTasksofStateAuthorities
− keepingthelistsandoverviews;arrangingofthearchivesanddocu-mentarymaterial;
− keepingarecordanddeliveryofpost;archivingthedocumentarymaterial;keepingarecordoftheadministrativematters,financialoperations(Articles2,7)
− stenotypistandtypisttasks(Articles2,8)− officialranksofcivilservants,educationandworkexperiences(Ar-
ticles20-22)− professionsofcivilservants(Articles2�-25)− promotionofcivilservants,appraisalofcivilservants,salariesofcivil
servants,salarygrades(Articles28-�8)
Regulation on Recognitions of Civil Servants in State Administration Authorities
(Official Journal of the Republic of Montenegro, No. 21/96)
EXPLICITLY
− typesofrecognitionsincivilservice(Articles2,�)− requirementsforawardingofrecognitions–professional,effective
andefficientwork(Article4)− decision-makingandprocedureofawardingrecognitiontocivil
servants(Article5)− personnelrecord(Article5)
IMPLICITLY
− monitoringandevaluationofthecivilservants’performance− performancestandardsandcriteria− leadership− negotiationskills− internationalco-operationwithintheworkingfunctionsofanau-
thorityofthestateadministration− executionofthepersonnelfunctionwithintheauthoritiesofthestate
administration
81PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ContentAnalysisofCurrentLegislationRegulatingtheTasksofStateAuthorities
Regulation on the Government of the Republic of Montenegro
(Official Journal of the Republic of Montenegro, No. 15/94, and 4/97)
EXPLICITLY
− initiationandpreparationoflaws,regulationsandothergenerallegalacts(Articles7,12)
− obligationoftheministriestoinforming(providinginformation)theGovernmentoftheRepublicofMontenegroconcerningquestionsthatareimportantfordeterminingandexecutingofgovernmentalpolicy(Article7)
− policyexecutionandexecutionoflawsandotherregulationsaswellasgenerallegalacts–executedbyministriesandotheradministrativeauthorities(Articles12,21,22,2�)
− issuingofaccordanceconcerningcontentsofacceptanceofregula-tionsandothermeasures(Articles12,16,17)
− preparationofopinionsconcerninglawsandotherregulationswhichwerenotpreparedbytheGovernmentoftheRepublicofMontenegro(Articles16,17)
− preparationofpositionsconcerninginitiativesandproposalsoftheParliamentoftheRepublicofMontenegrofromthesphereofcom-petenciesoftheGovernmentoftheRepublicofMontenegro(Article14)
− preparationofanswerstothequestionsoftheMembersoftheParlia-ment(Article14)
IMPLICITLY
− preparationofreportsonexecutionoflaws,otherregulationsandgenerallegalacts,andaboutothermeasuresfromitssphereofcom-petenciesandabouteffectsofsuchmeasures
− co-operationintheworkoftheParliamentoftheRepublicofMon-tenegroanditsworkingbodiesinpassinglawsorotherregulations,
82 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ContentAnalysisofCurrentLegislationRegulatingtheTasksofStateAuthorities
whichhavebeenproposedbytheGovernmentoftheRepublicofMontenegro
− acceptanceoforganizationalmeasures− acceptanceofpersonnelandothermeasures− guidanceoftheworkofholdersofthepublicauthorizationswithin
theworkingfieldofaministry− leadershipwithintheadministrativeauthorities
Regulation on the Organization and Method of Operation of the State Administration
(Official Journal of the Republic of Montenegro, No. 8/93, 33/01, 09/03, 19/03)
EXPLICITLY
− executionofpublicfunctions(tasks)onbehalfofthestate(inthefieldinwhichanauthorityisactive)(Article�8a)
− executionofprofessional,technical,organizational,developmental,andpromotionaltasksinthefieldofcompetenceofanadministrativeauthority(Article�8i)
− co-operationandco-ordinationofworkwithintheadministrative/stateauthorities(Articles�6,�7)
− providinginformationanddatatotheparliament,otherauthorities,generalpublic,andcitizensabouttheworkoftheauthority–»PublicRelations«function(Article�5,�6)
− operationoftheadministrativeauthoritiesaccordingtoprovisionsofGeneralAdministrativeProcedureActandotherregulationswhichregulatesomespecialadministrativeprocedures(Articles2,�8v)
− executionandimplementationofconstitution, laws(e.g.generaladministrativeprocedures)andotherlegalacts(Articles2,�8a,�8v,�8g,�8u,�8f)
− executionofaninspectionfunction–supervisionoftheexecutionandimplementationofconstitution,lawsandotherlegalacts(Articles�8d,�8đ,�8e,�8f,�8j,�8u,�8ž)
8�PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ContentAnalysisofCurrentLegislationRegulatingtheTasksofStateAuthorities
− executionofsupervisionoftheprofessionalandeffectiveworkofthewholestateadministrationand/orindividualauthorities(Article2)
− executionofsupervisionofthefunctioningandworkofthelocalgovernment,publicinstitutesandotherpublicservices(Article2)
− preparationoflegalandotheranalyses(Article�8b)− apprehensionforkeepingadministrativestatisticswithintheadmin-
istrativeauthorities(Article�8i)− recordkeeping,developmentofinformaticsandinformationsystems
ofadministrativeauthorities(Article�8i)− preparationofannualandmedium–termworkingreportsand
programs(Article�8b)− trainingofcivilservantswithintheauthoritiesofthepublicadmin-
istration(Article2)− preparationforproficiencyexamsanditsexecutionwithintheau-
thoritiesofthepublicadministration(Article2)− internationalco-operation(Articles6,6a)− co-operationwiththeEuropeanIntegration(accessionoftheRepub-
licofMontenegrointotheEuropeanIntegrationProcesses–thesocalled»EuropeanAffairs«)(Article6a)
− preparationofinternallegalactsconcerningtheinternalorganiza-tionandsystematizationofworkingplaceswithintheadministrativeauthorities(Article2)
− settlementoftheorganizationandworkofanadministrativeauthor-ity,headingandco-ordinatingofworkwithintheadministrativeauthority(Articles2,�6,�7)
IMPLICITLY
− personnelmanagementfunctionwithinthestateadministration–socalled»HumanResourcesManagement«function
− preparationofanalyses,systemsolutions,concepts,strategies,andothermeasuresforsuccessfuloperationofastateauthority(socalled“policy–making”function
84 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ContentAnalysisofCurrentLegislationRegulatingtheTasksofStateAuthorities
Rules of Procedure of the Parliament of the Republic of Montenegro
(Official Journal of the Republic of Montenegro, No. 45/01)
EXPLICITLY
− methodsofworkoftheworkingbodiesoftheParliamentoftheRepublicofMontenegro(Articles12-27)
− preparationofthereportsandproposals(Article25)− determinationoftherelationshipoftheParliamentoftheRepublic
ofMontenegrowiththeGovernmentoftheRepublicofMontenegroandwithotherstateauthorities
− informationandexplanationswhichtheauthoritiesofthestatead-ministrationandauthoritiesofthelocalself-governingcommunitieshavetoprovidetotheMembersoftheParliament
− cooperationamongworkingbodiesoftheParliamentoftheRepublicofMontenegro(Article20)
− obligationtoco-operateatthemeetingsoftheParliamentoftheRepublicofMontenegroanditsworkingbodies(Articles20-26)
− co-operationatthepublicpresentationsofopinionsorganizedbytheParliamentoftheRepublicofMontenegro(Article184)
− preparationofreportsonexecutionoflaws,otherregulationsandgenerallegalacts,andaboutothermeasuresfromitssphereofcom-petenciesandabouteffectsofsuchmeasures(Article72)
− preparationoflawsandtheknowledgeoftheprocedureoftheirac-ceptance(Articles72-91)
− preparationofothergeneral legalactsandtheknowledgeoftheprocedureoftheiracceptance(Articles72-91)
− preparationofstatebudgetandthefinalreportonexecutionofthestatebudget(Articles72,92)
− obligationofprovidinginformationconcerningquestionsthatareimportantfordeterminingandexecutingofgovernmentalpolicy(Article69)
− knowledgeoftheprocedureofauthenticexpositionofthelaws(Ar-ticles9�-95)
− knowledgeoftheprocedureofdecision-making(Articles60,61)
85PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ContentAnalysisofCurrentLegislationRegulatingtheTasksofStateAuthorities
− preparationofothergenerallegalactsandtheprocedureoftheiracceptance(Article92)
− knowledgeanduseoftheratificationprocedureforratificationoftheinternationaltreaties(Articles96,97)
− knowledgeandexecutionoftheprocedureofofficeoperation(Articles28,67,68,184)
IMPLICITLY
− knowledgeanduseofthelegislativeprocedure− knowledgeanduseoftheprocedureofapprovalofthestatebudg-
et− knowledgeanduseoftheproceduresofapprovalofotherlegalacts
oftheParliamentoftheRepublicofMontenegro− knowledgeoftherelationshipoftheParliamentoftheRepublicof
MontenegrototheGovernmentoftheRepublicofMontenegro− reportingoftheGovernmentoftheRepublicofMontenegrotothe
ParliamentoftheRepublicofMontenegro− providingdatatotheworkingbodiesoftheParliamentoftheRe-
publicofMontenegro(datawhichareimportantforpolicymakinganddraftingoflegislation)
Rules of Procedure of the Government of the Republic of Montenegro
(Official Journal of the Republic of Montenegro, No. 45/01)
EXPLICITLY
− preparationofannualworkingplans(Articles�7–41)− preparationoflaws,otherregulationsandgenerallegalactswhich
areproposedbytheGovernmentoftheRepublicofMontenegroforacceptancebytheParliamentoftheRepublicofMontenegro(Articles4�,45)
− preparationofopinionsabout lawsandotherregulationsoftheParliamentoftheRepublicofMontenegrothatwerenotproposed
86 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ContentAnalysisofCurrentLegislationRegulatingtheTasksofStateAuthorities
bytheGovernmentoftheRepublicofMontenegro(Articles4�,46,49)
− preparationofmaterialconcerningpolicydeterminationinindividualspheresinwhichtheGovernmentoftheRepublicofMontenegroproposesthemeasurestotheParliamentoftheRepublicofMonte-negro(Articles4�,45,5�,54)
− preparationofmaterialfromthesphereofcompetenceoftheGovern-mentoftheRepublicofMontenegroconcerningwhichtheParliamentoftheRepublicofMontenegroshouldtakeaposition(Articles4�,45,48)
− executioninternationalcontactsandnegotiations(Article48)− preparationofgovernmentalregulationsandtheirobligatoryinter-
pretation,andpreparationofdecisionsanddecrees(Articles79,80)− co-operationintheworkofcommittees,commissionsandother
workingbodiesoftheParliamentoftheRepublicofMontenegro(Article8�)
− co-operationinprofessionalcouncils,whichhavebeenfoundedbytheGovernmentoftheRepublicofMontenegroinfunctionofitsadvisorybodies(Articles17-�6)
− preparationofmaterialforthegovernmentalsessionsandforsessionsofitsworkingbodies(Articles80,85)
− reconciliationofmaterialwithotheradministrativeauthorities–rec-onciliationoflegalandotheracts(Article85)
− preparationofanalysesoffinancial,organizationalandotherexecu-tivemeasures(Article5�)
− assuringthepublicityofworkofadministrativeauthorities(Article82)
− knowledgeandexecutionofprocedureofofficeoperation(Articles47,56,57,79)
IMPLICITLY
− executionofadministrativejobsforindividualworkingbodies− co-operationinthepreparationoftheworkingprogrammeofthe
GovernmentoftheRepublicofMontenegro
87PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ContentAnalysisofCurrentLegislationRegulatingtheTasksofStateAuthorities
− knowledgeandapplicationofprovisionsoftheStandingOrdersoftheGovernmentoftheRepublicofMontenegro,andthesameregardingtheParliament’sStandingOrders(whichmeansknowledgeofthelegislativeprocedureandproceduralrulesofbothbodies)
− chairingofworkingsessionsi.e.meetingsindifferentworkingbod-ies
Rule Book on the Principles and Procedure of Completion and Assessment of Civil Servants’ Probationary Work
(Official Journal of the Republic of Montenegro, No. 18/96)
EXPLICITLY
− probationaryworkasapreconditionforenteringemployment(Article2)
− organizationoftheprobationarywork(Article�)− knowledge,interdisciplinaryskillsandabilities(Articles�,4)− assessmentcriteria(Articles�,4)
IMPLICITLY
− humanresourcemanagement(HRM)functions
Rules Concerning the Acting of State Administration
Authorities toward Citizens(Official Journal of the Republic of Montenegro, No.1/93)
EXPLICITLY
− knowledgeoftherulesconcerningworkofthestateauthoritiesandadministrativeauthoritieswiththecitizensastheclients/customers(Articles1,2,7,8)
− providinginstructionsandexplanationstocitizensandotherpersonsandorganizationsconcerningquestionswhichareimportantforenforcementoftheirrights(Article2)
88 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ContentAnalysisofCurrentLegislationRegulatingtheTasksofStateAuthorities
− assuringoptimalworkorganisation(Article2)− respectingadministrativeprocedures(Article2)− protectionofthecitizens’rights(Article2)− correctuseoflanguageintheadministrativeoperationofthestate
authoritiesandadministrativeauthorities(Article2)− respectingrulesandregulationsonofficeprocedures(Article�)− knowledgeoftherulesconcerningworktimeandofficehourswithin
thestateauthoritiesandadministrativeauthorities,preparationofthedispositionofworkingtimewithintheadministrativeauthorities(Article6)
− meetings(Article7)− citizens’receptionrecordsandannualscheduleofthecivilservants,
responsibleforreception(Article7)− respectingsecuritymeasuresconcerningdocuments,premisesetc.
(Article10).
Rule Book on Training of Trainees, Professional Exam and Additional Training of Civil Servants
(Official Journal of the Republic of Montenegro, No. 18/93, 31/95, 53/01)
EXPLICITLY
Trainingoftrainees− provisionoftrainingofthetrainees(organizationandexecutionof
trainees’training)(Article1)− organisationofthetrainingfortrainees(Articles2,�)− preparationofthecurriculumfortrainingoftrainees(Article2)− trainees’obligationtopreparedailyreports(journal)duringthe
trainingperiod(Article�)Professionalexam− professionalexam–applicationrequirements(Articles6-8)− generalandspecificprogramme/contentsoftheprofessionalexam
(Articles2,7-16,Appendix)
89PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ContentAnalysisofCurrentLegislationRegulatingtheTasksofStateAuthorities
− twocategoriesofcivilservantsaccordingtoeducation(Article9)− generalprogramme–knowledgeofthefollowigareas(Article9):− candidateswithhighereducationanduniversitydegree
- constitutionalregulationofthestate- administrativelaw- labourlaw- businesslaw- financeswithbasicknowledgeofstatistics
− candidateswithsecondaryeducation- basicelementsoftheconstitutionalregulationofthestate- basicelemetsoftheorganizationandfunctionsofthestate
executivepowerandlocalself-government- basicelementsofthegeneraladministrativeprocedure- basicelementsoffinancesandstatistics- officamanagement
− obligationtopasstheprofessionalexamaftercompletedtrainingperiod(Article6)
− executionoftheprofessionalexam(Articles17-��)− thefunctionofthementorwithinauthoritiesofthestateadministra-
tion(Article�)− provisionofpermanentandorganizedtrainingofcivilservants
and,ontheotherhand,obligationofcivilservantstotaketrainingcontinuously(Articles1,�7,�8)
− draftingandimplementationofacivilservicetrainingcurriculum(Article�7)
− obligationtodraftannualandindividualtrainingprogrammesforcivilservants(Articles�4,�8)
− curriculumandsubjectmatteroftraining(Article�4,�5)− trainingmethodsandapproaches(individualworkandstudy,profes-
sionallectures,courses,seminars,practicalwork,formaleducation)(Article�6)
− organizationofhorizontal/commonprogrammes(Article�7)− cooperationbetweendifferentinstitutionsinimplementingthepro-
grammes(Article�7)− examinations(Article�8)
90 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ContentAnalysisofCurrentLegislationRegulatingtheTasksofStateAuthorities
IMPLICITLY
− obligationtoprovidetrainingoftraineeswithinstateadministrationauthorities
− obligationtotaketheprofessionalexam− obligationtoprovideadditionaltraininginstateadministration
authorities− functionaltraining− trainingneedsassessmentwithinthepublicadministration(the
“TrainingNeedsAnalysis”function)− draftingofcivilservicetrainingcurricula,theirimplementationand
evaluationofeffectiveness− obligationtodraftcivilservicetrainingprogrammes–semi-annual
andannualprogrammes− obligationtoassess(verify)theresultsofthetrainingandthemethods
applied(evaluationfunction)
Instruction on the Uniform Principle for Internal Organization and Systematization of
State Administration Authorities(Official Journal of the Republic of Montenegro, No. 11/92)
IMPLICITLY
Generalactivities:− preparationoftheinternalorganizationwithinauthoritiesofthestate
administrationanddecision-makingonmattersfromthesphereofthecompetenciesofanadministrativeauthorityoraninternalorga-nizationalunit;heading(leadership)oftheinternalorganizationalunitswithintheauthoritiesofthestateadministrationandplanning,organizing,coordinating,professionalsteering,andthecontroloftheworkoftheseunits
− assuringthepublicityofworkofanadministrativeauthoritythroughconductingpress–conferencesandreleasingofficialnotices
91PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ContentAnalysisofCurrentLegislationRegulatingtheTasksofStateAuthorities
− preparationofsystematisationofworkingplaceswithintheadmin-istrativeauthorities
− co-ordinationoftheexecutionofadministrativetasks− executionofprojecttaskswithintheadministrativeauthoritiesand
leadershipoftheprojectgroups− thenomenclatureoftypicalworkingplaceswithinthestateadmin-
istration− executionoftheinternalsupervisionoftheperformanceofadmin-
istrativetasks− responsibilityforlawful,timelyandeffectiveenforcementoftherights
andobligationsofthepartieswithinadministrativeprocedures− performanceofsupportive,organizationalandotherauxiliarytasks
withinanadministrativeauthority− performanceoftasksofthemainofficeofanadministrativeauthority
i.e.executionofthefunctionofofficeoperation− performanceoftheactivitieswithintheadministrativeprocedure,
executionoftheadministrativeprocedure,issuingoftheadministra-tivedecisions
− assistancetotheministerinheadingaministry;(thenomenclatureoftypicalworkingplaceswithinthestateadministration
− providingthedevelopmentoforganizationandworkingmethodswithintheadministrativeauthorities;(thenomenclatureoftypicalworkingplaceswithinthestateadministration,
− executionofthepersonnelpolicyofanadministrativeauthority− designingofthemostdemandingsystemsolutionsconcerningwork
ofanadministrativeauthority− executionofspecializeddevelopmentalandpromotionaltaskswithin
anadministrativeauthority− preparationofmaterialsforworkofanadministrativeauthority− preparationofanalyses,developmentalprojects,information,reports,
andothermaterials;− executionoftheinspectiontasks− collecting,arrangingandpreparationofdatafordesigningthema-
terials
92 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ContentAnalysisofCurrentLegislationRegulatingtheTasksofStateAuthorities
− keepingtherecordsandpreparationofinformationonthebasisofthementionedrecords;
− issuingoftheattestationsbasedontherecordsofanadministrativeauthority
− executionofofficeoperation–headingofaregistrationofficeandmakingclassificationofadministrativematters
− collectingandanalysingofdataonfinancialoperationofanadmin-istrativeauthority
− processingofthebook-keepingdata− organisationalandtechnicaltasksfortheexecutionoftheelectronic
dataprocessing− financialandaccountingtasks,andacashboxoperation− sortingandclassificationoffiles− arrangementofarchivesanddocumentarymaterialwithinanad-
ministrativeauthority,keepingoflistsandoverviews− administrative–technicaltasks, lessdemandingcomputerwork,
typewritingtasks,computerdatainput− keepingrecordsanddeliveryofmail,maintainingofinternalrecords,
executingsimpleofficeoperation− preparationandsigningofconcreteadministrativeactswithinthe
administrativeauthorities− selectionandorganizationofcivilservantswithinanadministrative
authority(HumanResourcesManagementfunction)− systematicoperationandstrategicplanning
9�PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ContentAnalysisofCurrentLegislationRegulatingtheTasksofStateAuthorities
4.2. GENERAL TASKS AND PROCEDURAL LEGISLATION
The Law on General Administrative Procedure (Official Journal of the Federal Republic of Yugoslavia,
No. 33/97, 31/01)
EXPLICITLY
− proceedinginaccordancewiththeGeneralAdministrativeProcedureActatdecidinginadministrativeproceduresonrights,obligationsandlegalinterestsofphysicalorlegalpersons(Article1)
− proceedinginaccordancewiththespecialadministrativeprocedureinthecaseofcertaincategoriesofadministrativemattersorcivilservants(Articles2,�)
− decidinginadministrativemattersonthebasisoftheprincipleofconstitutionalityandlegality(Article5)
− correctusageoflanguageinanadministrativeprocedure(Article16)
The Law on Administrative Dispute(Official Journal of the Federal Republic of Yugoslavia,
No. 46/96)
EXPLICITLY
− knowledgeofjudicialprotectionofrightsofpartiestoaprocedureagainstdecisionsofadministrativeauthoritiesandholdersofpublicauthority(judicialcontrolof legalityofadministrativedecisions)(Article1)
− knowledgeofthesystemofjudicialprotectionwithintheadminis-trativedispute(Article2,Chapter2)
− competencyofthecourts(Article17)− procedureofconductinganadministrativedisputeandlegalremedies
withinanadministrativedispute(Chapter4)− executionofjudgments(Chapter5)
94 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ContentAnalysisofCurrentLegislationRegulatingtheTasksofStateAuthorities
The Law on Inspection Control(Official Journal of the Republic of Montenegro, No. 39/03)
EXPLICITLY
− knowledgeofprinciplesofinspectioncontrol(Articles1,6-12)− responsibilitiesfortheexecutionoftheinspectioncontrol(Article
2)− tasksandobligationsoftheinspectors(Articles1�,15)− inspectors’authorities(Article14)− knowledgeoftheimplementationoftheLawonGeneralAdministra-
tiveprocedureandotherregulationsindifferentspheresofadmin-istrativework(Articles15,16)
− knowledgeoftheimplementationoftheinspectioncontrolprocedure(Articles26-42)
− knowledgeoftheimplementationofspecialproceduresintheframe-workofinspectioncontrol(Articles4�-56)
− executionofjudgments(Articles57-6�)
The Law on the Budget of the Republic of Montenegro(Official Journal of the Republic of Montenegro,
No. 40/01 and 44/01)
EXPLICITLY
− knowledgeoftheregulationsfromthesphereoftheexecutionofbudgetoftheRepublicofMontenegro(Articles1,�)
− obligationsandresponsibilitiesoftheMinisterforFinance(Article2)− knowledgeofthenotiononconceptsinthefieldofpublicfinance
(Article�)− statebudgetandcurrentfiscalperiod(Articles4-8)− definitionoftherevenuesofthestatebudget(Article9)− definitionoftheexpendituresofthestatebudget(Article10)− knowledgeoftheprocedureofpreparationandplanningofthestate
budget(Articles19-29)
95PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ContentAnalysisofCurrentLegislationRegulatingtheTasksofStateAuthorities
− openingthebankaccountbytheMinisterofFinance(Article12)− knowledgeoftheprocedureofpreparationandplanningofthemu-
nicipalities’budget(Article26,27)− knowledgeoftheprocedureofexecutionofthebudget(Articles�0-
�7)− internalcontrol,budgetarysupervisionandinternal/externalaudit
ofbook-keeping(Articles44-5�,55-57)− responsibilitiesandtasksofstatetreasury(Article54)− knowledgeofthestatebudget(Article55)− developmentoftheplanningprocessforstatebudget(Article55)
IMPLICITLY
− openingandclosingofaccountsbythebeneficiariesofthebudgetresources
− keepingaccountancy− preparationofmonthlydisbursementplansfortheMinistryofFi-
nance− knowledgeofthemethodoffinancingthefunctionsandtaskswhich
areperformedbytheadministrativeauthoritiesoftheRepublicofMontenegro
− knowledgeoftherevenuesforfinancingthepublicexpenditures− temporaryfinancingincaseofnon–acceptanceofthestatebudget− theprincipleofusageofthebudgetresourcesforpreviouslyknown
purposes− creationofbudgetreserves− publicdebt− supervisionoverthecreationandutilizationofthebudgetresources− accountancyfunctionofthebudgetbeneficiaries
96 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ContentAnalysisofCurrentLegislationRegulatingtheTasksofStateAuthorities
The Law on the Constitutional Court(Official Journal of the Republic of Montenegro, No. 21/93)
EXPLICITLY
− obligationofenforcementofdecisionsoftheConstitutionalCourt(Article1)
− obligationtoprovidedatatotheConstitutionalCourtandgrantac-cesstodocuments(Article18)
IMPLICITLY
− knowledgeofthecompetenciesoftheConstitutionalCourt− knowledgeoftheprocedureofassessmentofconstitutionalityand
legalityoflawsandotherregulations− knowledgeoftheconstitutionalappealprocedure− knowledgeofotherproceduresthatareregulatedbytheLawonthe
ConstitutionalCourt.
The Law on the Protector of Human Rights and Freedoms(Official Journal of the Republic of Montenegro, No. 41/03)
IMPLICITLY
− obligationtoprovidedatatotheProtectorofHumanRightsandFreedomsandobligationtograntaccesstodocuments
− obligationtoconsideropinions,proposals,recommendations,andcriticalobservationspreparedbytheProtectorofHumanRightsandFreedomsandaddressedtothestateauthorities
− obligationtoprovideexplanationsandinformationtotheProtectorofHumanRightsandFreedoms
− obligationtoprovideassistancetotheProtectorofHumanRightsandFreedomsrelatingtoproceduress/heconducts
− obligationofthestateauthoritiestoinformtheProtectorofHumanRightsandFreedomsonmeasurestheyhaveenforcedonthebasisof
97PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ContentAnalysisofCurrentLegislationRegulatingtheTasksofStateAuthorities
theopinions,proposals,recommendations,andcriticalobservationsmadebytheProtectorofHumanRightsandFreedoms(obligationtosubmitareportaboutthemeasurestaken)
− knowledgeofthefunctionsandcompetenciesoftheProtectorofHumanRightsandFreedoms
− knowledgeoftheworkingprocedureappliedbytheProtectorofHumanRightsandFreedoms
Instruction on the Work of the State Treasury(Official Journal of the Republic of Montenegro, No. 64/01)
EXPLICITLY
− knowledgeofexecutionofthestatebudget,controloffinancialtrans-action,assuranceofliquidityofthestatetreasuryaccount(Article1)
− knowledgeofadministrationinternalandexternaldebts(Article1)
− responsibilitiesoftheemployeeswhoarecompetentforpublicfinance(Articles19-2�)
− knowledgeofthemethodologyof internalfinancialcontrolandexpenditures(Articles�6-5�)
− knowledgeoftheprocedureofpaymentsfromthestatebudget(Ar-ticles45-49)
− knowledgeofthepublicprocurementprocedure(Articles42-4�)
IMPLICITLY
− informingtheMinistryofFinanceon(financial)obligationstaken− obtainingofconformitiesbytheMinistryofFinanceconcerning
possibilitiesofspendingthebudgetresources− keepingofthepublicaccountancywithinfinancialdepartmentsof
theusersofthebudgetarymeans− preparationofdocumentationforthepaymentsfromthestatebud-
get
98 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ContentAnalysisofCurrentLegislationRegulatingtheTasksofStateAuthorities
− preparationofthecontractswithwhichtheobligationsconcerningthebudgetarymeanshavebeentakenbythesocalledusersofthebudgetresources
− conclusionofemploymentcontracts,copyrightcontracts,andothercontracts
4.3. CLASSIFICATION OF HORIZONTAL TASKS INTO MAIN GROUPS
Systemic-legal tasks of state authorities and management in state administration
Systemic-legal issues
Functionsandtasksofthepublicadministrationauthoritieswhichmaybederivedfromtheanalysedregulations(explicitlyorimplicitly)arethefollowing:
− knowledgeoftheconstitutionalregulationofthestate;− knowledgeofthesystemoftheprotectionofhumanrightsandfun-
damentalfreedoms;− theprincipleofconstitutionalityandlegalityofworkoftheexecutive
branchofstatepowersandofthestateadministration;− theprincipleoftheseparationofpowers–therelationshipamong
theParliamentoftheRepublicofMontenegro,theGovernmentoftheRepublicofMontenegro,andtheministriesandadministrativeauthorities;
− otherconstitutionalprinciplesandtheirapplicationintheworkoftheexecutivebranchandstateadministration;
− actsoftheParliamentoftheRepublicofMontenegro,theGovernmentoftheRepublicofMontenegro,andministries,relationshipamongthelegalacts–thehierarchyamongthelegalacts;
− conclusionoftheinternationaltreatiesandapplicationofsuchtrea-tiesintheRepublicofMontenegro;
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− knowledgeoftheconstitutionalpositionoftheexecutivebranchofthestategovernmentandofthestateadministration;
− constitutionallaw;− systemofthepublicadministrationinMontenegro;− knowledgeofcompetenciesandapositionof:
o theConstitutionalCourtoftheRepublicofMontenegro,o theProtectorofHumanRightsandFreedoms,
− thelegalsystemandlegalactsoftheEuropeanUnion;− knowledgeofthecontentsofdifferentgeneralinternationalmulti-
lateralandbilateraltreatiesandtheirapplicationwithinthepublicadministration.
Management in State Administration
Functionsandtasksofthepublicadministrationauthoritieswhichmaybederivedfromtheanalysedregulations(explicitlyorimplicitly)arethefollowing:
− managementandrepresentationofanauthorityofthepublicadmin-istration,byusingthecontemporaryleadershipmethods;
− leadershipandguidanceofworkofthesubordinatedemployees;− managementoftheinternalorganizationalunitsofanauthorityof
thepublicadministration–assistancetoministeri.e.tosuperiorinleadingtheauthority(leadershipprinciples, leadershipmethods,leadershipstyles,etc.);
− guidingofthesessionsandmeetingswithintheministriesandad-ministrativeauthoritiesandatthelevelofinter–ministerialworkinggroups(applicationofthepresentationtechniquesandrhetoric);
− leadershipoftheprojectandothergroups(projectmanagementandleadership);
− representationofthepublicinterests;− strategicplanningofworkwithintheadministrativeauthoritiesof
thepublicadministration;− responsibilityforrationalandeffectiveorganizationofanadminis-
trativeauthoritiesandfortheimprovementoftheorganizationandworkingmethods;
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− co-ordinationofworkamongtheorganizationalunitsoftheministriesandtheadministrativeauthorities;
− co-ordinationofworkwithotherauthoritiesofthepublicadminis-tration;
− co-operationintheworkoftheGovernmentoftheRepublicofMon-tenegroanditsworkingbodies,andco-operationintheworkoftheParliamentoftheRepublicofMontenegroanditsworkingbodies;
− co-operationintheworkofotherstateauthoritiesandtheirworkingbodies(theParliamentoftheRepublicofMontenegro,andsimi-lar);
− co-operationintheprofessionalcouncils,commissionsandotherworkingbodies;
− overviewoftheexecutionoftheaccepteddecisions;− negotiationskills.
Preparation of Materials in State Administration
Functionsandtasksofthepublicadministrationauthoritieswhichmaybederivedfromtheanalysedregulations(explicitlyorimplicitly)arethefollowing:
− preparationofinformation,analyses,systematicsolutions,concepts,strategiesandothermaterialfortheworkoftheGovernmentoftheRepublicofMontenegroandotheradministrativeauthorities(thefunctionof”policy-making”);
− preparationofperiodicalworkingprogramswithintheministriesandadministrativeauthorities;
− preparationoftheanswerstotheinitiativesandpositionsoftheParliamentoftheRepublicofMontenegroandothertheministriesandadministrativeauthorities;
− preparationoftheanswerstotheconstitutionalcomplaints;− preparationoftheanswerstotheinitiativesandthequestionsofthe
MembersofParliament;− preparationofopinionsaboutmaterial(lawsetc.)whichwerenot
preparedbytheGovernmentoftheRepublicofMontenegro.
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Normative Activity and the Legislative Procedure
Functionsandtasksofthepublicadministrationauthoritieswhichmaybederivedfromtheanalysedregulations(explicitlyofimplicitly)arethefollowing:
− draftingoflawsinaccordancewiththelegislativeprocedurewhichisdeterminedbytheStandingOrdersoftheParliamentoftheRepub-licofMontenegro(workingmethodsoftheworkingbodiesoftheParliamentoftheRepublicofMontenegro,relationshipamongtheGovernmentoftheRepublicofMontenegroandtheParliamentoftheRepublicofMontenegro,withinthelegislativeprocedure,phasesofthelegislativeprocedureandroleofindividualinstitutions,etc.);
− draftingofotherregulationsandgenerallegalactsinaccordancewithprovisionsoftheStandingOrdersoftheGovernmentoftheRepublicofMontenegro(regulations,ordinances,decrees,instructions):
− implementationoftheprincipleoftheconstitutionalityandlegality,− knowledgeandapplicationoftherulesoflegaltechniques(nomo-
techniques)intheprocessofthepreparationoflawsandotherlegalregulations.
− preparationofcomparativeanalysesconcerningforeignregulationsincertainsphereofthelegalstandardization;
− linguisticandstylisticarrangementofmaterialandanappropriatenomo-technique;
− co-operationwiththeMinistryofForeignAffairswithintheprocedureofratificationoftheinternaltreatiesandagreements;
− co-operationwiththeMinistryofFinancewithintheprocedureoftheapprovalofthestatebudget;
− knowledgeofthejudiciaryandjudicialsystem.
The Administrative Procedure and Control Mechanisms in State Administration
Functionsandtasksofthepublicadministrationauthoritiesthatmaybederivedfromtheanalysedregulations(explicitlyorimplicitly)arethefollowing:
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− operationinaccordancewiththeGeneralAdministrativeProcedureActandregulationsdeterminingspecialadministrativeprocedures;
− executioni.e.implementationoflawsandotherregulations;− issuingtheadministrativeorders;− executionoffactualactivities;− decision-makingaboutcomplaintswithintheadministrativeproce-
dure;− executionoftheinternalstagesofappealsupervisionwithinthe
administrativeprocedure;− preparationoftheobligatoryinstructionsfortheworkatthedifferent
levelsofstateadministration;− inspectionandtheadministrativesupervision–controloftheexecu-
tionoflawsandotherregulations;− interpretationoflegalregulationsintheprocessofdecision-making
ontheadministrativematters;− issuingtheattestationsbasedontheofficialrecords;− workwiththepartieswithintheadministrativeprocedure(relation-
shipwiththeparties,communicationmethods,etc.);− applicationoftherulesconcerningworkingtimeandofficehours
withintheministriesandadministrativeauthorities;− knowledgeofthejudicialcontrolofthelegalityoftheadministrative
decisions(theadministrativedispute).
Human Resources Management in State Administration Authorities
Functionsandtasksofthepublicadministrationauthoritieswhichmaybederivedfromtheanalysedregulations(explicitlyorimplicitly)arethefollowing:− trainingneedsassessmentinthesphereofthestateadministration;− planningoftrainingforthepersonnelwithinthestateadministra-
tion;− assuringtrainingfortraineeswithinthestateadministrationand
preparationofemployedtraineesfortheproficiencyexams;
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− executionofthementor’sfunctionwithinthestateadministration;− assuringpermanentprofessionaltrainingforthepersonnelwithin
thestateadministration;− conclusionofcontractsonadditionalfunctionaltrainingwithinthe
stateadministration;− assessmentofimpactofthetrainingontheemployees’effectiveness
andefficiencyofworkinthestateadministration;− co-operationinthepreparationofprogrammesforthespecificpart
ofthestateproficiencyexamwithinthestateadministration;− co-operationwiththeministryresponsibleforexecutionofthepro-
fessionalexamswithinthestateadministration;− executionofthehumanresourcesmanagementfunctionandhuman
resourcespolicywithinthestateadministration;− executionofpublicannouncements/competitionsforemployment
withinthestateadministration;− recruitmentwithinthestateadministration(executionoftheprocedure
forconcludingemploymentcontractswithinthestateadministra-tion);
− conclusionofemploymentcontracts,copyrightandothercon-tracts;
− transferofpersonnelwithinthestateadministrationauthorities;− providingdataaboutthepersonnelneeds;− keepingofthepersonnelrecords;− conductingdisciplinaryprocedureswithinthestateadministration
authorities;− draftingofactsconcerningtheinternalorganizationandsystematiza-
tionofworkpostswithinthestateadministrationauthorities;− draftinggenerallegalactsconcerningtheemploymentrelations;− draftingofemploymentplanswithinthestateadministration;− managementoftheemploymentrelationsofcivilservants;− draftingorganizationalmeasureswithinthestateadministration
authorities;− knowledgeofthepaymentsystemwithinthestateadministration;− executionofperformanceassessmentofthepersonnelwithinthe
stateadministration;
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− executionoftheproceduresforverficationofconditionsforpromo-tionofpersonnelwithinthestateadministration;
− classificationoftheworkpostsintotariffgroupsandsalarygrades;− executionofpersonnelrationalizationwithintheauthoritiesofthe
stateadministration;− draftingofwrittenanalysesoftheextentofaworkingspherefrom
theaspectofneedsinpersonnel;− conductingofadministrativedisputeswithrespecttoemployment
relationswithinthestateadministration;− scholarshipswithinthestateadministration.
International Cooperation and the so-called “European Affairs”
Functionsandtasksofthepublicadministrationauthoritieswhichmaybederivedfromtheanalysedregulations(explicitlyorimplicitly)arethefollowing:
− internationalco-operationoftheadministrativeauthoritieswiththeadministrativeauthoritiesofothercountriesandinternationalorganizations;
− procedureofpreparationandconclusionofinternationaltreatiesandagreements;
− implementationofinternationalagreements;− managementofthefundsconcerningforeigntechnicalassistance;− preparationofaccessionoftheRepublicofMontenegrototheEurope-
anUnionandotherinternationalintegrationsandorganizations;− knowledgeoftheroleofsomeinstitutionsoftheEuropeanUnion
(Commission,Council,Parliament,CourtofJustice,etc.)andre-lationshipsamongtheseinstitutionsandrelationshipsamongtheinstitutionsandtheMemberStatesoftheEuropeanUnion;
− negotiationsandnegotiationskills;− protocol-relatedtasks,etc.
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Financial and Budgetary Aspects of the Public Administration Work
Functionsandtasksofthepublicadministrationauthoritieswhichmaybederivedfromtheanalysedregulations(explicitlyorimplicitly)arethefollowing:
− collectionandanalysisofdataonthefinancialoperationofthemin-istriesandadministrativeauthorities;
− processingofthebookkeepingdata;− executionofthecashoperations;− executionofthefinancial–accountancyoperationswithinthemin-
istriesandadministrativeauthorities:o keepingofprescribedanduniquerecords,o determinationoftheannuallevelsofthewritingoffofma-
terialandnon-materialinvestments,o divisionoftheannuallevelsofwritingoff,o writingoffofthefinancialinvestments,o permanentwritingoffconcerningshort– termobliga-
tions,o settlingofinterestsandexchangeratesdifferencesfromthe
executedclaimsandobligations.
− knowledgeofthepublicfinancessystemandthestatebudget:o publicfinances,o thestatebudget,o preparationoftheproposals forthebudgetaryexpendi-
tures,o periodoftemporarilyfinancing,o theprincipleofthedeterminedpurposesofthepublicex-
penditures,o usageofthebasicanalyticalapparatus.
− executionofpublicprocurementprocedures:− knowledgeofthemechanismsofpublicexpenditurescontrol:
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o knowledgeofthemethodoffinancingthepublicexpendi-turesatthedifferentlevelsofstateadministration,
o knowledgeoftheprinciplesofexecutionofthebudgetoftheRepublicofMontenegro,
o knowledgeofthetasks,procedure,workingmethods,andcompetenciesoftheMinistryofFinanceinthecontrolpro-cessofthepublicexpenditures.
− knowledgeoftheregulationsconcerningtheexecutionofthestatebudget;
− knowledgeoftheapplicativemethodsofthestatebudgetrevenues;− draftingoffinancialreports;− knowledgeofthemethodoffinancingofsalariesoftheemployees
withinministriesandadministrativeauthorities,financingofre-sourcesallocatedforperformancemotivation,andfinancingofotherneeds;
− knowledgeofthemethodsofopeningandclosingofaccountsforthebeneficiariesofthebudgetresources;
− knowledgeoftheproceduresforpaymentsfromthestatebudget;− preparationofthedocumentationandobtainingtheagreements
bytheMinistryofFinanceconcerningthepaymentsfromthestatebudget;
− knowledgeofrevisionandinspectionprocedureswithrespecttothebeneficiariesofthebudgetresources;
− draftingandconclusionofcontracts.
General and Related Contents of Work within the State Administration
Information Technology within State Administration
Functionsandtasksofthepublicadministrationauthoritieswhichmaybederivedfromtheanalysedregulations(explicitlyorimplicitly)arethefollowing:
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− planning,setting-upandmaintainingoftheinformationsystemswithintheministriesandadministrativeauthorities;
− connectionbetweentheinformationsystemsandpublicdatabaseswithintheministriesandadministrativeauthorities;
− informaticsand informationsystemswithintheministriesandadministrativeauthorities(informaticsingeneral,hardware,LAN–localnetworks,standardenvironment,e-mail,Internet,mainframeprocessingwithinthestateadministration).
− introductionofthenewtechnologicalsolutionsintotheoperationoftheministriesandadministrativeauthorities;
− designingandmaintainingofaninformationsystemofanadminis-trativeauthority;
− knowledgeforworkonacomputer–utilizationofdifferentapplica-tionprograms(Word,Excel,PowerPoint,etc.);
− trainingofcivilservantsregardingtheusageoftheapplicationpro-gramsandtelecommunicationequipment;
− developmentoftheinformationsystemsforsupportingthedecision-making:
o businesssystemsandtheirenvironment,o contemporarymanagementconcepts,o roleofinformationwithinthemanagementprocesses,o informationsupporttothemanagementprocesses.
− electronicdataprocessing.
Office Management
Functionsandtasksofthepublicadministrationauthoritieswhichcanbederivedfromtheanalysedregulations(explicitlyorimplicitly)arethefollowing:
− knowledgeandexecutionoftheproceduresofofficeoperationwithintheministriesandadministrativeauthorities;
− executionofadministrativesupportfortheworkingbodiesandauthoritieswithintheministriesandadministrativeauthorities;
− executionoftasksofthemainofficewithintheministriesandad-ministrativeauthorities;
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− acceptanceofthedocumentsandrequests,invitationstothepartiesofanadministrativeprocedure;
− classificationofthematerialandadministrativematterswithintheministriesandadministrativeauthorities;
− overviewingtheexpirationofterms;− arrangingofthearchivesanddocumentarymaterial;− keepingarecordanddeliveryofpost;− archivingthedocumentarymaterial;− keepingrecordofadministrativematters;− typewritingtasks,dataentry,etc.
Data Protection and Data Security
Functionsandtasksofthepublicadministrationauthoritieswhichmaybederivedfromtheanalysedregulations(explicitlyorimplicitly)arethefollowing:
− determinationofthesecrecyofadministrativemattersanddocu-ments;
− knowledgeoftheregulationsfromthesphereofthepersonaldataprotection;
− dataprotectionanddatasecuritywithintheministriesandadmin-istrativeauthorities;
− knowledgeofthemethodsandtechniquesofthepersonaldatase-curity;
− protectionofothersecretdata(state,military,official,andbusinessdata).
Administrative Statistics
Functionsandtasksofthepublicadministrationauthoritieswhichmaybederivedfromtheanalysedregulations(explicitlyorimplicitly)arethefollowing:
− collection,processing,arranging,andpreparingofdataandinforma-tionwithintheministriesandadministrativeauthorities;
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− responsibilityformaintainingtheadministrativestatistics;− keepingaunifiedrecordonadministrativematterswithinthemin-
istriesandadministrativeauthorities.
Tasks of Promotion and Development of the State Administration
Functionsandtasksofthepublicadministrationauthoritieswhichmaybederivedfromtheanalysedregulations(explicitlyorimplicitly)arethefollowing:
− promotionoftheeconomic,social,environmentalandoverallsocialdevelopment;
− executionofprofessional,technical,organizationaltasksandtaskspromotingdevelopment.
Public Relations
Functionsandtasksofthepublicadministrationauthoritieswhichmaybederivedfromtheanalysedregulations(explicitlyorimplicitly)arethefollowing:
− preparationofpressconferencesandofficialannouncements;− providinginformationanddatatothegeneralpublicandcitizens
(assuringthepublicityoftheadministrativeauthorities);− traininginpublicrelationsandtrainingofPRadvisors;− organizationandexecutionofmediacampaignsandpromotionof
projectsoftheindividualministriesandadministrativeauthorities;− analytical–documentaryactivity.
Official Language at the Workplace
Functionsandtasksofthepublicadministrationauthoritieswhichmaybederivedfromtheanalysedregulations(explicitlyorimplicitly)arethefollowing:
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− correctuseof languageintheoperationoftheauthoritiesoftheministriesandadministrativeauthorities(communicationwiththeparties,preparationofregulations,andsimilar);
− proofreading;− useofcorrectofficiallanguageattheworkplace;− linguisticandstylisticarrangementofmaterialwhichhastobesent
totheGovernmentoftheRepublicofMontenegro,theParliamentoftheRepublicofMontenegro,andotherauthoritiesofthepublicadministration.
4.4. CONCLUSIONS
Thisanalysis,comprising22lawsandotherlegalregulations,representsinfactacatalogueofnecessaryknowledgeandskillsthatcivilservantsshouldpossessinordertoperformtheirtaskseffectivelyi.e.acatalogueoftheexistingtasksandfunctionsthatareperformedorshouldbeper-formedbytheministriesandadministrativeauthoritiesthroughthecivilservantsandstateemployees.
Theanalysiscomprisesthosetasksandfunctionsofstateauthoritiesthataredeterminedbytheregulationsexplicitlyoratleastimplicitly.
Withintheanalysis,ourattentionwasfocusedonlytotheso-called“hori-zontal”tasksi.e.functionsofstateadministrationauthorities,respectivelycivilservants.Thepurposeoftheanalysiswastoidentifyexactlythegeneraltasksofcivilservantsi.e.stateauthoritiesbecauseofthestrategicnecessityforthecompetentsectoroftheHumanResourcesManagementAuthoritytodevelopaprogrammeforprofessionalandfunctionaltrainingofcivilservantsinthoseareasthataremostrelevantforeffectiveworkofthestateauthoritiesandthecivilservants.AfterthatitisnecessarytoimplementprofessionalandfunctionaltrainingprogrammeswithintheHumanResourcesManagementAuthoritywhichwillberesponsibleforthis“horizontal”programme,whilethevarious“vertical”trainingareasshouldbetakencareofbythestateauthoritiesindependently.
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Theanalysisdoeshowevernotincludeanumberofnecessarycontentsthatarepartofthesphereoftheso-called“NewPublicManagement”,duetothefactthattheyarenotcomprisedinthecurrentlegislation.Thecontentrelatingtothe“newmanagementofthepublicsector”hasbeendefinedwithinthe“implicit”partsoftheanalysis.Thusthefuture“cur-riculum”ofthesectoroftheHumanResourcesManagementAuthoritycompetentforpreparationandimplementationoffunctionaltrainingprogrammewillhavetobeextendedsoastocompriseaswellelementsofthe“NewPublicManagement”.
Eventually,theemphasisshouldbeputonthepurposeofthislegalanaly-sis:itspurposeisabovealltofacilitatethepreparationofaqualitycivilservicetrainingprogrammeintheMontenegrinpublicadministration.Thismeansthatthisanalysisshoulddefinethecontentthatistobein-cludedinthisprogramme,whichshouldbecomethebasictooltofurtherbroadenanddeepentheknowledgeinordertopromotetheeffectivenessandefficiencyofthepublicadministrationwork.TheotherelementofthefactualbasisforthepreparationofthisprogrammeisapreviouslyconductedanalysisofquestionnairespreparedbythePARiM-1ProjectTeamduring2004(annextothistext).
Thesynthesisofthesetwomaterials(analysisofthequestionnairesandthislegalanalysis)shouldgenerateaqualitytrainingprogrammeforcivilservants.Ofcourse,thecontentofthisprogrammeshouldconsequentlybereviewedfrequentlybymeansofadditionalregularandadhocTNAsinordertodetermineadditionaltrainingneeds.Besidethementionedones,theprogrammeshouldincludesomeadditionalcontents,suchasthoserelatingtoNewPublicManagement,aswellassomeadditionalgeneralcontents(foreignlanguages,computerskills,communicationskillsetc.).
COMPLEMENTARY TRAINING NEEDS ASSESSMENT FOR PERSONNEL IN
STATE ADMINISTRATION
(Factual material collected in 2005)
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5. COMPLEMENTARY TRAINING NEEDS ASSESSMENT FOR PERSONNEL IN STATE ADMINISTRATION39
(Factual material collected in 2005)
Inaccordancewithcurrentlegislation,theHRMAconductedinAugust2005aneedsanalysisfortrainingofpersonnelinstateadministration.Theanalysiscomprisesaswell«horizontaltasks»whicharecommonintheoperationofallstateadministrationauthorities,i.e.administrativetaskswhichcivilservants/stateemployees,aswellasexecutivepersonnel,mustperformindischargingtheirdutiesinstateadministrationauthori-ties,inaccordancewithadministrativelegislation.
Theresearchwasconductedonarepresentativesampleof(6respectively12)employeesin10�administrativeauthorities.
ThemethodappliedforconductingtheTNAwasbymeansofquestion-naires,whichconsistedofanumberofquestions,someofwhichincludedstandardizedanswers,whilesomequestionsofferedthepossibilitytoexpresstherespondents’ownideas.Dependingonthesizeofthestateauthority,thequestionnairesweredistributedinthefollowingway:�(respectively6)tomanagingpersonnel,2(respectively4)tocivilservantsand1(respectively2)tostateemployees.
Outof10�stateauthorities,69ofthem(being67%ofthetotalnumbersurveyed)answeredthequestionnaireswithinthegivenperiod:
1. MinistryofJustice2. MinistryofInternationalEconomicRelationsandEuropean
Integrations�. MinistryofEconomy
�9 ThisanalysiswasconductedbytheHumanResourcesManagementAuthorityduring2005.
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4. MinistryofFinance5. MinistryofForeignAffairs6. MinistryofCultureandMedia7. MinistryofAgriculture,ForestryandWaterManagement8. MinistryofMaritimeandTraffic9. MinistryofEducationandScience10. MinistryofLabourandSocialWelfare11. MinistryofTourism12. Ministry of Protection of Rights of Minority and Ethnic
Groups1�. MinistryofEnvironmentalProtectionandSpatialPlanning14. BureauofSeismology15. SecretariatforDevelopment16. SecretariatforLegislation17. GeneralServiceofthePresidentoftheRoM18. GeneralServiceoftheGovernmentoftheRoM19. ProtectorofHumanRightsandFreedoms20. TaxAdministration21. CustomsAdministration22. MaritimeSafetyAgency2�. AuthorityforAnticorruptionInitiative24. RealEstateAuthority25. AuthorityforSportsandYouthAffairs26. AntiMoneyLaunderingAuthority27. ForestManagementAgency28. BureauofHydrologyandMeteorology29. VeterinaryAdministration�0. PenitentiaryInstitution/BureauforEnforcementofCriminal
Sanctions�1. BureauforInternationalScientific,Educational,Culturaland
TechnicalCooperation�2. BureauforEducationalServices��. StatisticsBureau�4. NationalSecurityAgency�5. DirectorateofPublicWorks�6. DirectorateforPublicRoads
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�7. DirectorateforProcurementoftheRepublic�8. DirectorateforDevelopmentofSmallandMediumEnterpris-
es�9. StateAuditingInstitution40. AdministrativeCourt41. AdministrativeCourtoftheRepublicofMontenegro42. ConstitutionalCourt4�. BasicStateProsecutor44. BasicCourtBijeloPolje45. BasicCourtHercegNovi46. BasicCourtKolasin47. BasicCourtPljevlja48. BasicCourtBar49. BasicProsecutor50. BasicProsecutorBerane51. BasicProsecutorHercegNovi52. BasicProsecutorKolasin5�. BasicProsecutorPlav54. RegionalMisdemeanorAuthorityBar55. RegionalMisdemeanorAuthorityBerane56. RegionalMisdemeanorAuthorityBijeloPolje57. RegionalMisdemeanorAuthorityBudva58. RegionalMisdemeanorAuthorityCetinje59. RegionalMisdemeanorAuthorityDanilovgrad60. RegionalMisdemeanorAuthorityKolasin61. RegionalMisdemeanorAuthorityPlav62. RegionalMisdemeanorAuthorityPljevlja6�. HigherCourtBijeloPolje64. HigherCourtPodgorica65. HigherProsecutorBijeloPolje66. SupremeStateProsecutoroftheRepublicofMontenegro67. CommissionforEstablishmentofConflictsofInterest
a)Theaimofthisresearchwastocomplementthepreviousanalysis,conductedin200�bythePARiMIIProjectTeam,andtoobtainnewinformationontheneedsforfurthereducationandtrainingofpersonnel
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intheMontenegrinstateadministration.TheanalysisoftheobtaineddatawillcontributetothedraftingoftheTrainingProgrammeforCivilServ-antsandStateEmployeesfortheyear2006.Tothisend,themajorityofquestionswasofacombinedtype,givingtherespondentsthepossibility,besidecirclingtheofferedanswers,toexpresstheirinterestsinacertainfieldnotcomprisedbythequestionnaire.
b)Thepreliminaryanalysisrevealedthatoutof486respondentsfrom69stateadministrationauthorities(ministries,directorates,adminis-trations,institutes,agencies,commissions)andotherstateauthorities(courts,regionalmisdemeanourauthorities,prosecutors),themajoritywasinterestedinthefollowingareas:
Systemic-legal tasks of state authoritiesTOPIC NUMBER
1. Basic concepts and principles of constitutional and administrative legislation of Montenegro 44
2. General administrative procedure 373. Work and communication of state authorities and
parties in a general administrative procedure 38
4. First and second instance proceeding upon appeal 315. Enforcement of administrative decisions/acts 176. Conducting administrative dispute 117. Inspection control procedure 188. The new civil service system 629. Entering employment in state administration authori-
ties 30
10. Performance appraisal of personnel in state admin-istration 65
11. The Law on the Protector of Human Rights and Freedoms 21
12. Civil Service Code of Ethics 8213. Comparative analyses of international legislation 5514. Nomotechnique in the process of drafting laws and
other legal acts 19
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4437 38
31
1711
18
62
30
65
21
82
55
19
0
10
20
30
40
50
60
70
80
90
1 2 3 4 5 6 7 8 9 10 11 12 13 14
Other Conducting economic policy in market conditions 1Development of economic analyses 1Cooperation between state administration authorities 1Publishing professional journals and publications 1
Thefollowingthematicunitwasconsideredasparticularlyinteresting:
TOPIC NUMBER1. Strategy of work planning in state administration
authorities 81
2. Planning of personnel training in state administra-tion
121
3. Negotiations and negotiating skills 434. Management of organizational units within state
administration47
5. Human resources management and development 486. Central personnel record 227. Internal labour market record 6
TOTAL: 368
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Almost50%respondentswereinterestedinthefollowingarea:
81
121
43 47 48
226
1 2 3 4 5 6 7
Drafting of project proposals in state administration TOPIC NUMBER
1. Drafting of project proposals in state administra-tion 113
2. Planning of financial requirements for the realization of projects/budgeting 78
3. Project management in state administration 51 Other Drafting of project proposals relating to human and
minority rights 1Implementation of projects and impact analysis 1Comparative impact analysis 1TOTAL: 244
113
78
51
0
20
40
60
80
100
120
1 2 3
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d) Financial and budgetary aspects of the state administration work
TOPIC NUMBER 1. Financial-accounting tasks in state administration
authorities144
2. Public financing system and the state budget 112 3. The state budget and its execution 159
72
58
73
0
10
20
30
40
50
60
70
80
1 2 3
Other NumberDefining some untypical aspects of spatial planning 1Monitoring of international standards 1Possibility of introducing commercial affairs within the administration for the development of services and financial assistance to human resources
1
f ) General and related tasks in state administration TOPIC NUMBER
1. Office management 173 2. Public relations 161 3. The role of the IT system in state administration – e-
governance232
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8878
111
0
20
40
60
80
100
120
1 2 3
Other NumberCivil service relations 1Cooperation with NGO and commissions 1
Communication in state administration TOPIC NUMBER1 1. Resolving of conflict situations 692 2. Skills in communication with clients 124
33. Business communication and protocol for techni-
cal secretaries 36
Other
4Communication at the relation Superior Officer – Civil Servant and State Employee and vice versa
1
5Skills in communication with other state administra-tion authorities
1
6Internal communication between administrative authorities
1
TOTAL: 232
12�PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ComplementaryTrainingNeedsAssessmentforPersonnelinStateAdministration
8878
111
0
20
40
60
80
100
120
1 2 3
Other NumberCivil service relations 1Cooperation with NGO and commissions 1
Communication in state administration TOPIC NUMBER1 1. Resolving of conflict situations 692 2. Skills in communication with clients 124
33. Business communication and protocol for techni-
cal secretaries 36
Other
4Communication at the relation Superior Officer – Civil Servant and State Employee and vice versa
1
5Skills in communication with other state administra-tion authorities
1
6Internal communication between administrative authorities
1
TOTAL: 232
69
124
36
0
50
100
150
1 2 3
Other Num.Communication at the relation Superior Officer – Civil Ser-vant and State Employee and vice versa 1Skills in communication with other state administration authorities 1Internal communication between administrative authori-ties 1Official communication and communication with col-leagues 1
g) International cooperation and «European Affairs» TOPIC NUM.1. the European Union 1162. the legal system and legal acts of the EU 1663. Institutions and method of decision-making of the EU 1014. Preparation of accession of the Republic of Montenegro to the EU
216
5. Management of resources obtained through international technical support
150
TOTAL: 749
124 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ComplementaryTrainingNeedsAssessmentforPersonnelinStateAdministration
49
89
48
105
63
0
20
40
60
80
100
120
1 2 3 4 5
TOPIC NUMBER
1Systemic-legal affairs of state administration authori-ties
530
2 Leadership/management in state authorities 3683 Drafting of project proposals in state administration 244
4Financial and budgetary aspects of the state admin-istration work
205
5 General and related tasks in state administration 2776 Communication within the state administration 2327 International cooperation and «European Affairs» 354
530
368
244205
277232
354
0
100
200
300
400
500
600
1 2 3 4 5 6 7
Thequestionastowhichformsoffurtherfunctionaleducationandtrainingwouldbeofgreatestuseintheperformanceofeverydayworktaskswasansweredbytherespondentsinthefollowingway:
125PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ComplementaryTrainingNeedsAssessmentforPersonnelinStateAdministration
2. The most effective forms of additional functional education and training Seminars 273Workshops 149In-service training 172Study visits for training within institutions outside RoM 154
124
58
92
67
0
20
40
60
80
100120
140
1 2 3 4
TheanalysisrevealedthatthemajorityoftherespondentswasinterestedinlearningtheEnglishlanguage.
Learning foreign languages Language NumberEnglish 126French 21Italian 49German 22Russian 2Spanish 9Greek 2
126 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
133
1439
243 4 1
0
50
100
150
1 2 3 4 5 6 7
Learning foreign languages
Foreign language skills Language Knowledge Active Passive
1 English 140 1322 German 10 243 French 14 334 Italian 25 405 Russian 68 886 Slovene 1 17 Macedonian 1 08 Albanian 2 09 Czech 1 0
10 Spanish 2 111 Portuguese 1 012 Dutch 1 0
140
10 14 25
68
1 1 2 1 2 1 10
50
100
150
1 2 3 4 5 6 7 8 9 10 11 12
Active knowledge of a foreign language
127PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ComplementaryTrainingNeedsAssessmentforPersonnelinStateAdministration
Therespondentsdemonstratedaswellaninterestinacquiringorupgrad-ingtheircomputerskills:
Training in computer literacy Microsoft Word 53Microsoft Excel 55Microsoft Power Point 51 Internet 59
Thecurrentlevelofcomputerskills:
Computer skillsYES NO396 76
Microsoft Word 388Microsoft Excel 223Microsoft Power Point 143Internet 288
388
223
143
288
050
100150200250300350400
MicrosoftWord
MicrosoftExcel
MicrosoftPowerPoint
Internet
1 1
ANALYSIS OF FACTUAL MATERIAL COLLECTED DURING 2003 -2005
1�0 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
AnalysisofFactualMaterialCollectedDuring200�-2005
1�1PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
AnalysisofFactualMaterialCollectedDuring200�-2005
6. ANALYSIS OF FACTUAL MATERIAL COLLECTED DURING 2003 -2005
BACKGROUND
Thedevelopmentof thisdocumentwasgroundedonthenecessityofprovidingspecificcommentsandsolutionsrelatedtothepreviousanalysesofneedsforprofessionaleducationandtrainingofemployeesinstateadministrationauthorities,andwhicharetoserveasaproceed-ingpointforthepreparationandimplementationoftheProgrammeofProfessionalTrainingforCivilServantsandStateEmployeesintheMontenegrinStateAdministration.PursuanttoArticle9�oftheLawonCivilServantsandStateEmployees,theauthoritymanaginghumanresources(HumanResourcesManagementAuthority)isresponsibleforthepreparationandimplementationoftheProgrammeofProfessionalTrainingforCivilServantsandStateEmployees.Commentsgiveninthisdocumentrelatetodatacompiledwhilerelyingexclusivelyonfacts40andtheyareinthefunctionofplanningfutureactivitiestostrengthenthecivilserviceeducationandtrainingsystem.
Inthefirstpartof thisdocument, thefocushasbeenplacedontheAnalysisoftheFactualMaterials„Education,TrainingandProfessionalDevelopmentinCentralAdministration“41relatedtothesituationintheMontenegrinsystemofprofessionaltrainingandeducationofcivilservantsandstateemployeesintheperiodfrom2002/200�.Atthispoint,wemustemphasizethefactthatintheperiodofdoingthisanalysis,wehaveworkedintensivelyontheimplementationofthenewLawonCivil
40 Whiledevelopingthisdocument,theauthorsusedtheanalysesandfactualmateri-alspreparedandcompiledbytheproject“SupporttoPublicAdministrationReform/PARiMII”andtheHumanResourcesManagementAuthority.
41 Theanalysisoffactualmaterial“EducationandTraininginPublicAdminsitration-CentralGovernment”waspreparedundertheproject“PublicAdministrationRe-forminMontenegro/PARiMI”,whichwasfundedbytheEUandmanagedbytheEuropeanAgencyforReconstructionintheperiod01.07.2002-01.07.2004,withthesituationinstateadministrationinthisfieldon01.07.200�inclusive.
1�2 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
AnalysisofFactualMaterialCollectedDuring200�-2005
ServantsandStateEmployees(adoptedinApril2004)duringthedraft-ingofwhichgapsoftheexistingcivilservicesystemhavebeentakenintoaccountinthepartrelatingtothesystemoffurthereducationandtrainingofcivilservice.Asmentionedabove,manycommentsregard-ingthisanalysismayappeartobeovercomealreadybynewsolutionsproposedinthesaidLaw.
Inthefollowingpartofthisdocument,wehavepresentedtheresultsofadditionalanalysis42offactualmaterialscompiledintheperiodfrom01.08.2005to01.10.2005bytheHumanResourcesManagementAuthor-ity,aimedatsupplementingtheanalysisdonepreviouslybyPARIMIProjectby2005inclusive.
Whiledraftingthisdocument,commentsandsuggestedsolutionshavebeenpresentedintheorderthedatawassystematizedandprocessedintheabovementionedanalyses.
6.1. ANALYSIS OF FACTUAL MATERIAL «EDUCATION AND TRAINING IN CENTRAL ADMINISTRATION» 2003/2004
IntheintroductorypartoftheAnalysis,thementioneddatashowthattheprocedureofcompilingdataincluded�5stateauthorities,andthattheanswerstotheofferedquestionnairewereincomplete.Incompletedataarethereasonsforlesserqualityofprocesseddataandresultsob-tained,aswellasforthefactthatintheinterpretationofcertaindataobjectivelytherearecertainlimitationsinthesenseofextentofreliabilityofconclusions.
42 ThecomplementaryanalysisofneedsforcivilserviceprofessionaldevelopmentandtrainingimplementedbytheHumanResourcesManagementAuthorityintheperiodfrom01.08.2005-01.10.2005wasconductedwiththeaimofdefiningchangesinprioritiesofcivilserviceprofessionaldevelopmentarisingintheperiodfrommid2004untiltheendof2005.
1��PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
AnalysisofFactualMaterialCollectedDuring200�-2005
Solution:Asawaytoovercomepreventivelysuchsortofincompletenessofdatainfutureresearch,itisproposedtochargecertainpersonswithineachstateauthoritytomonitordirectlytheimplementationoftheprocedureoffillingoutofthequestionnairebycivilservantsandstateemployees.Forthecivilservantsand/orstateemployeeschargedwithsuchtaskitisnecessarytoholdcoordinationorinstructionmeetingsduringwhichsuchpersonswouldbeacquaintedingreaterdetailswiththecontentsofproposedquestionnairesandthemethodoftheircompletion.Inthisway,bettercoordinationofcivilservantsand/orstateemployeeschargedforthefillingoutofthequestionnaireandhigherqualityofdataobtainedi.e.completenessofthequestionnairewouldbeensured.
- Educational structure of personnel in the analyzed state administration authorities
Whenobservingtheexistingsituationrelatedtothelevelofeducationofpersonsemployedintheanalyzedsampleofstateauthorities(ministries,secretariatsandotherstateauthorities)dataindicatethatwiththedeclineintheimportanceofthepositiontheemployeesmayoccupy,lowerlevelofeducationisregistered.Itisparticularlyimportanttoaccentuatetheproblemoflackofspecificspecializedknowledgeandadditionalskillsatalllevelsofworkpostsinstateauthorities.
Lackofspecializedknowledgeandadditionalskillsmaybetheconse-quenceoflackofplanningoffurtherprofessionaleducationandtrain-ingwhichisshownbythedatathataspecialplanandprogrammeofprofessionaleducationexistedin17.4%ofthecasesi.e.stateauthoritieswhichrespondedtothequestionnaire.21%ofthequestionnairesfilledoutindicatethereisnoneedtodefinetrainingplans,while41%men-tionlimitingfinancialsituationasareasonfornon-definingofplanandprogramme.In�8%ofthecases,aspecificreasonforthelackoftrainingplanshasnotbeenmentioned.
1�4 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
AnalysisofFactualMaterialCollectedDuring200�-2005
Solution:Withtheaimofcleardeterminationofspecificspecializedknowledgeandadditionalskillsatalllevelsofworkposts,itisnecessarytodoaprioranalysisofexistinglegislationandbylawsthatspecificallydefinegeneralandspecialconditionsthatapersonmustmeetinordertocoveracertainworkposition.Thescalewiththeobtaineddatamustprescribespecificallywhichadditionalknowledgeandskillsenableanemployeetoperformhis/herworktasksinawayasfunctionalandasefficientaspossible.Obtainedresultswillindicatenecessaryprogrammesoffurthereducationandtraining.Nextstepwouldrelatetotheinterimevaluationofworkofcivilservants,whereaspecialaccentshouldbeplacedonattendingspecificprogrammesnecessaryforacquiringofadditionalknowledgeandskills.
Resultsofdatacompiledrelatingtotheevaluationofperformanceofemployeeswillshowmainsegmentsforthepreparationofaplanofpro-fessionaleducationandtrainingofpersonnelinaspecificstateauthority.Resultingplansofprofessionaleducationandtrainingmaybefromtimetotimesupplementedandupdatedattheendofeachyearforthefollow-ingyear.Thusitispossibletomonitorthechangesthatmayoccurasaresultofoperationorrequestsfortheinnovationinwork.
- Extension of the traineeship period
Dataindicatingtoahighrateoftraineespassingtheprofessionalexami-nationwhentakingtheexamforthefirsttimeisverysatisfactory.Thistendencymayalsobepointingattwodifferentdirectionswhenconsider-ingsuchpositiverate,thateither:
1. there isaclearlyspecifiedandahigh-quality trainingpro-grammefortraineesinstateauthorities,or
2. thecriteria forpassingtheprofessionalexaminationfortheworkinstateauthoritiesarenotdemanding,whichmayaffectlaternegativelytheveryqualityofthecandidates’work.
Solution:Ifthehighrateofpassingtheexaminationisaresultoflowrequirementsandcriteriaattheprofessionalexamination,itisnecessarytoestablish
1�5PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
AnalysisofFactualMaterialCollectedDuring200�-2005
whetherthereisaprecisemethodologyspecifyingtheexaminationpro-cedureandcriteriaaccordingtowhichtheknowledgeofthecandidateisevaluated,ortheevaluationofthecandidateisperformedbyfreeas-sessmentoftheexaminer.
Iftheevaluationofthecandidatesisdonebyfreeassessmentoftheexam-iner,itisnecessarytospecifytheprocedureandcriteriafortheevaluationofcandidatesandtoacquainttheexaminerswiththat.
- Additional training of employees
Datarelatingtofurthertrainingshowaverylowfrequencyofemployeesthathaveundergonefurthertraining.Whenobservingdatarelatingtothehierarchicalpositionofemployees,itcanbenotedthatiftheposi-tionislessdemandinganumberofpersonsthatarefunctionallytrainedisgrowing.
Solution:Inthiscase,itisnecessaryforthestateauthorities,whenpreparingclearlydefinedplansofeducationandtrainingoftheiremployees,toensureequalparticipationofallemployeesintheirfurthertrainingandmasteringofdifferentskills.Itisalsousefulfortheinformationonthetypeoffurthereducationandtrainingthatmaybeofferedandwhicharefunctionalfortheperformanceofcertainjobs,tobeclearandaccessibletoallinterestedpersons(throughspecialbrochure,webpage...).
- Which areas and languages are the most important
InthepartoftheAnalysisrelatingtotheareasoftraining,wemayidentifythetendencythatthemostnecessaryareasoftrainingdependonthepo-sitionapersonoccupiesinastateauthority.Onlyatendencyofneedforcomputerliteracyispresentinadifferentpercentage,wheresuchneedisthemostprominentwiththeheadsofauthorities(ashighas46%).Intheofferedfacts,otherareasnecessaryfortheworkofemployeesatcertainpositionsmayalsoberegistered.DatarelatingtotrainingintheforeignlanguagesshowtheneedforfurthertrainingintheEnglishlanguageparticularly(in100%ofsurveyedcases)forallworkpositions.
1�6 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
AnalysisofFactualMaterialCollectedDuring200�-2005
Solution:SolutionproposedinthepartrelatingtoStructure of Level of Education of Employees in Analyzed State Administration Authorities,mayservetoovercomethesituationofnon-definedareasoffurthertraining,aswellasinthepreciseplanningofdynamicsofthetrainingforeachemployee.Here,wemuststresstheneedtoprovideopportunitiesofequalaccesstotheeducationandtrainingprogrammebyallemployees.
- Funds allocated for education, training and professional development
Datainthefactualanalysisshowafactthatsubstantiallymoreofmaterialresourcesareallocatedtotrainingandprofessionaldevelopmentofemployeesinstateauthoritiesthantotheireducation.Intheprogrammesoftrainingandprofessionaldevelopmentofcivilservants,thehighestpercentageofmaterialresourcesisallocatedtothecategoryofthepermanentlyemployed.Also,itcanbenoticedthatthepercentageofseniorstaffandfunctionariestakingpartinprofessionaldevelopmentisthelowest.
Theabovementioned,inter alia,infersthefollowing:
1. duetonon-existenceofclearlydefinedtrainingplanthereisnocontinuityofprofessionaldevelopmentandtrainingofemployeesandtheyarenotgoal-oriented;
2. impossibilityofreconcilingworkinghoursandworkdutieswiththetimescheduleofimplementingtheprogrammesofprofes-sionaldevelopmentandtraining,andasaconsequence, theimpossibilitytoparticipateinprogrammes;
�. employeesarenotwellinformedofprogrammesofprofessionaldevelopmentandtrainingoffered;
4. non-existenceofappropriateprogrammesofprofessionaldevel-opmentforcertaincategoriesofemployees;
5. professionaldevelopmentandtrainingislefttotheself-initiativeofemployees.
1�7PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
AnalysisofFactualMaterialCollectedDuring200�-2005
Solution:Itisnecessarytoestablishadequate,continuousandavailableprogrammesofemployeetraining,aswellastoplanpreciselythedynamicsofindividualtrainingaccessibletoeveryonethroughvariousformsofinformation(websites,brochures...).Atthispoint,itshouldbenotedthatthereisaneedtomakeavailableforthemanagerialstaff,professionaldevelopmentandtrainingprogrammestailoredintermsofsubstanceandtimingac-cordingtotheirspecificworkduties.
- Permanent training institutionsWithregardtotheissueofthemostimportantinstitutionsprovidingservicesofpermanentfunctionaltrainingofemployeesinstateauthorities,wemaynoticeatendencyoforganizingad hock trainingandprofessionaldevelopmentbyprivateinstitutionsandinternationalorganizations,aswellasnon-existenceofcentralpublicinstitutionthatwoulddealwithsuchissues.Greaterlevelofinterestandparticipationoffunctionariesandthemanagementintheprogrammesorganizedbyprivateinstitutionsandinternationalorganizationsisalsonoticeable.Ontheotherhand,incaseofotheremployees(independentadvisors,advisorsandtrainees),ithasbeennoticedthattheyparticipatetoagreaterextentinorganizationandimplementationoftrainingbytheunitsforhumanresourcesman-agementofthestateauthoritiesthemselvesandotherpublicinstitutions(facultiesetc.).
Solution:Itisnecessarytoreconsiderthepossibilityofequalparticipationofallinstitutionsinthecreationandimplementationoftrainingofallemploy-ees.Inthisway,equalavailabilityofallprogrammesthatmaybeofferedtoemployeesbysuchinstitutionswouldbeprovided.Thebestwaytocoordinatetheinstitutionsdealingwithprogrammesofprofessionaldevelopmentaswellascompatibilityofsuchprogrammesistoreconsiderthepossibilitiesforestablishmentandorganizationofcentralinstitutiontodealwithsuchmatters.
1�8 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
AnalysisofFactualMaterialCollectedDuring200�-2005
- Existing civil service training system
InthepartofthisAnalysisrelatingtotheexistingsystemofeducationandtrainingofemployees,ithasbeenindicatedtoalackoflong-termandmid-termplansofprofessionaleducationandtrainingwithinstateauthoritiesthathavebeensurveyed.Planningisperformedatthelevelofinternalorganizationunitofthestateauthorityitself(in65.2%cases)orwithinCentralOfficeforHumanResourcesofthestateauthority(��.�)undershort-termdrafts.
Thelackofmid-termandlong-termplans,aswellasincompatibilityofshort-termplanning,mayindicatetoaneedforfurthertrainingofem-ployeeswhoareresponsibleforpreparationofsuchplansinmodalities,methodologiesandstagesofplanning.Furthermore,oneofthereasonsmayrelatetoalackofuniformsystemofprofessionaleducationandtraining(i.e.humanresourcespolicy)atthestatelevel.
Solution:Itisnecessarytoidentifyauniformmethodologyofconductinganalysesofneedsforthefurthertrainingofcivilservicethatwouldenabledefin-ingofgoalsoftheeducationandtrainingprogramme.Aftertheuniformmethodologyofplanningprofessionaleducationandtraininghasbeenidentified,itisnecessarytoarrangeforthetrainingcoursesofemployeesinchargeforhumanresourcesmanagementthroughwhichtheywouldbeacquaintedwiththemethodologyofplanning(e.g.conductinganalysisofneedsforfurthereducation,definingaimsoffurthereducation,iden-tifyingdynamicsoffurthereducationandtrainingetc.)Trainingcourseswouldbeaimedatpreparationofclearlydefinedshort-term,mid-termandlong-termplansoftrainingforeachstateauthority.
- Identifying needs for professional education and training of personnel
DatapresentedinthepartofthisAnalysisrelatingtotheidentificationofneedsforprofessionaleducationandtrainingofemployeesindicate
1�9PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
AnalysisofFactualMaterialCollectedDuring200�-2005
toalowpercentageofsystemicandregularidentifyingofthesaidneedswithinstateauthorities.Reasonsforsuchlowpercentageofregularas-sessmentofneedsforprofessionaleducationandtrainingofemployeesaremainlyofmaterialnature(thelackoffinancialresources)inmajorityofcaseswhileotherreasonsarenotmentioned.
Furthermore,itisnoticeablethatdatashowingtheneedsforadditionalprofessionaltrainingarecompiledtothegreatestextentbytheseniorstaffthemselves,whereas,ontheotherhand,systemofsurveyingemployeesisusedinasmallnumberofcases.Itisinterestingtomentionthefactthatthepercentageofself-initiativeforfurthertrainingofemployeesissubstantiallyhigherthanthepercentageofitbeingproposedbythemanagement,humanresourcesserviceorexternalorganizations.
Withreferencetotheabovementioned,itcanbeconcludedthatpreciselyforthereasonsofnon-existenceofclearlydefinedsystemofidentifica-tionofneedsforfurthereducationandtrainingofemployees,thereisnoplannedandcontinuousapproachinthefurthereducationandtrainingofemployees.Self-initiativeofemployeesinfindingandattendingneces-saryprogrammesofprofessionaleducationandtrainingshowsthattheemployeesarehighlyawareoftheneedtoimprovetheirknowledgeandskillswiththeaimoffacilitatingandupdatingtherealizationofworktasks.However,thelackofclearlydefinedsystemofidentificationofneedsfortrainingmayhaveasaconsequence:attendanceofnon-adequate(oruseless)programmes,recurrenceofthesamepersonsatprogrammesofprofessionaleducationandtraining,certainnumberofemployeesnotattendingprogrammesofprofessionaleducationandtraining(becauseofimpossibilityofequalaccesstoinformationonrealizationofspecificprogrammeortheindifferenceofemployees),etc.
Solution:Itisnecessarytoidentifyuniformsystemofidentifyingneedsforfurtherprofessionaleducationandtrainingofemployeesfortheimplementationandmaintenanceofwhichclearlyspecifiedentitiesshouldberesponsible.
140 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
AnalysisofFactualMaterialCollectedDuring200�-2005
- Evaluation of successfulness of additional training and professional education of personnel
InthispartoftheAnalysis,datacompiledshowthattheevaluationofeffectivenessof implementationof furthertrainingandprofessionaleducation ofpersonnel hasbeendoneinasmallpercentageofcases.Incaseswhentheevaluationhasnotbeendone,thereasonsmentionedaremainlythoseofnon-existenceofestablishedevaluationsystemortheanswersobtainedarevague.Incaseswhentheevaluationofeffectivenessofimplementationoffurthertrainingandprofessionaleducationwasdone,ithasbeenmainlytheresultofassessmentofimmediatesuperior,traineroreducator,orpersonnelservice.Themethodologyofevaluationmostfrequentlyinvolvesonly:monitoringtheeffectivenessoftheworkofemployee,interviewwiththeemployeewhohasundergoneadditionaltrainingandbymeansofquestionnaires.
Solution:Oneoftheprerequisitesfortheeffectivefutureplanningofadditionaleducationandtrainingofemployeesistoundertakeapriorevaluationofeffectivenessofprogrammesofadditionaleducationandtrainingimple-mentedpreviously.Resultsoftheevaluationmayhelpsuggestaqualityoftrainingandeducationcompleted,introductionofnewprogrammes,directionsforfurtherplanningofeducation,aswellasthenumberofpersonnelthatshouldundergofurthereducationandtraining.Inthissense,itisnecessarytoidentifyevaluationmethodology,itscontinuity,qualitativeandquantitativecriteriaofevaluation,personinchargefortheevaluation,withclearindicationthattheofferedtrainingisprovidedforunderlegalobligationsoftheemployeeundertakingit.Itisnecessarytoemphasizethatacquiringnewknowledgeandskillsisnolongeranoc-casionalobligationoftheemployeebutmaterialinvestment,whichwouldconsiderablymodifytheperceptionandviewthattherearenomaterialfundsavailableforfurthereducation(factstatedundertheAnalysisasamainproblem).
141PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
AnalysisofFactualMaterialCollectedDuring200�-2005
6.2. COMPLEMENTARY TRAINING NEEDS ANALYSIS FOR TRAINING OF PERSONNEL IN STATE ADMINISTRATION AUTHORITIES (2005 inclusive)
Theaimofconductinganadditionalanalysiswastodeterminetheneedsforadditionalcivilserviceeducationandtrainingrequiredformoreefficientandeffectiveperformanceofso-called“horizontalaffairs”existingintheoperationofallstateadministrationauthorities,i.e.administrativeaffairsthatmustbeperformedbythecivilservants,stateemployeesandthemanagementwhileperformingtheirworkdutiesinaccordancewithadministrativelegislation.Researchwasdoneonrepresentativesampleof(sixandtwelve,respectively)employeesin10�stateadministrationauthorities.
Fortheexaminationastotheneeds,pollingmethodwasused.Question-nairesincludedopen-endedandclose-endedquestionswhichenabledthosepolledtogivestandardizedanswers,butitalsogavetherespond-entspossibilitytoexpressfreelytheiropinion.Dependingonthesizeofastateauthority,questionnairesweredistributedasfollows:�(or6)tothemembersofthemanagement,2(or4)tocivilservants,1(or2)tostateemployees.Accordingly,thedistributionofquestionnairesincludeddifferentlevelsofemployeesinstateauthorities.Thementionedmethodofformulatinganddistributingthequestionnairesubstantiallycontrib-utedtorecordingofdifferentviewsandinterestsofemployees,aswellasqualitativeanalysisininterpretationofdata.
Wemustpointoutherethatoutofthedataproposed,wemayseethatonly67%ofstateauthoritiesansweredtoquestionnairesproposedwhichaffectedconsiderablytheobjectivityoftheanalysisandcommentsontheverydata.
- Horizontal areas of professional education and training of employees
Inthispartoftheanalysisrespondentshavebeenproposedtopics,sys-tematizedinseventhematicunitsrelatedtohorizontalareasofprofessional
142 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
AnalysisofFactualMaterialCollectedDuring200�-2005
educationandtrainingofemployees,tocirclethetopicsrelevantintheiropinion.Also,itwaspossibletocomplementthissectionofthequestion-nairethroughthepossibilityfortherespondentstoaddtopicsoffurthereducationandtrainingwhichtheyconsidertoberelevant.Asforthefre-quencyofoccurrenceofcertainanswers,outof486ofpersonssurveyedin69ofstateadministrationauthorities,thefollowingresultswereobtainedrankingtheanswersbythenumberinwhichtheywerecircled:
1a)withinthethematicunit:Systemic and Legal Affairs of State Au-thorities, topics:
Topic:No. of
answers1 Civil Service Ethics 822 Performance Appraisal in Civil Service 653 New Civil Service System 624 Development of Comparative Analyses of Foreign
Legislation 55
5 Main Concepts and Principles of Montenegrin Con-stitutional and Administrative Legislation
44
6 Work and Communication of Authorities and Parties within General Administrative Procedure
38
7 General Administrative Procedure 378 Ruling upon Appeal in the First and Second In-
stance 31
9 Starting Employment in State Administration Authorities
30
10 Law on the Protector of Human Rights and Freedoms
21
11 Nomotechnique in the Process of Preparation of Laws and Other Legal Instruments
19
12 Inspection Control Procedure 1813 Enforcement of Administrative Acts 1714 Conduct of Administrative Dispute 11
14�PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
AnalysisofFactualMaterialCollectedDuring200�-2005
Other:15 Conducting Economic Policy in Market Condi-
tions 1
16 Development of Economic Analyses 117 Cooperation between State Administration Au-
thorities 1
18 Publishing Professional Journals and Publications 1
Suchresultsshowtheexpressedneedsofcivilserviceforthemonitoringofreformactivities,throughbetterlevelofinformationinstateadmin-istration(gettingacquaintedwithnewlegislation)andmodernizationofworkthroughgettingacquaintedwithcomparativesolutionsandacceptanceofgoodpractice,showninparticularbythefirstfourtopicsinthetableabove.
1b)withinthethematicunitManagement in State Administration Authorities,topics:
Topic:No. of
answers1 Planning of Training in State Administration 1212 Strategy of Work Planning in State Administration
Authorities 81
3 Human Resources Management and Develop-ment
48
4 Management of Organizational Units within State Administration
47
5 Negotiations and Negotiation Skills 436 Central Personnel Records 227 Internal Labour Market Records 6
Presenteddataindicatetoaveryexplicitneedofemployeesforfurthertrainingrelatedtotheplanningofprofessionaleducationofemployeesaimedatamoreeffectivedevelopmentofhumanresources.Remarkableinteresthasbeenshownalsoforthetopicsofstrategicworkplanninginstateadministrationauthoritiesandmanagementanddevelopmentofhumanresources.
144 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
AnalysisofFactualMaterialCollectedDuring200�-2005
1c)withinthethematicunitDrafting of Project Proposals in State Administration,topics:
Topic:No. of
answers1 Drafting of Project Proposals in State Administra-
tion 113
2 Planning Financial Costs of Project Implementation 783 Project Management in State Administration 51Other:4 Drafting of Projects relating to Human and Minor-
ity Rights 1
5 Project Implementation and Result Analysis 16 Comparative Impact Analysis 1
Thetableaboveshowsasignificantimportanceoftheneedforacquir-ingknowledgeandskillsrelatedtodraftingofprojectproposalsinstateadministration.
1d)withinthethematicunitFinancial and Budgetary Aspects of Work of State Administration,topics:
Topic:No. of
answers1 State Budget and Execution of the State Budget 159
2Financial and Accounting Affairs in State Administra-tion Authorities
144
3 System of Public Finances and the State Budget 112Other:
4Defining Some Untypical Aspects of Spatial Plan-ning
1
5 Monitoring of International Standards 1
6Possibility of Introducing Commercial Affairs within the Administration for the Development of Services and Financial Assistance to Human Resources
1
145PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
AnalysisofFactualMaterialCollectedDuring200�-2005
ThementioneddatashowthatpersonsemployedinstateauthoritiesareveryinterestedinalltopicsproposedwithinthethematicunitofFinancial and Budgetary Aspects of State Administration Operations.
1e)withinthethematicunitofGeneral and Related Affairs in State Administration,topics:
Topic:No. of
answers1 Role of Information System in State Administration
(e-governance)232
2 Office Management 1733 Public Relations 161Other:4 Civil Service Relations 15 Cooperation with NGOs 1
Datashowthatfurtherprofessionaleducationandtrainingrelatedtothetopicofroleoftheinformationsysteminstateadministrationisevaluatedasverysignificantbythegreatestnumberofrespondents.
1f)withinthethematicunitofCommunication in Administration, topics:
Topic: No. of answers
1 Skills of Communication with Parties 1242 Resolving Conflict Situations 69
3 Business Communication and Protocol for Secre-taries 36
Other:
4 Communication at the relation Superior Officer – Civil Servant and State Employee and vice versa 1
5 Skills of Communication with other Administrative Authorities 1
6 Internal Communication between Administrative Authorities 1
146 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
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Communicationasabasisoffunctioningisseparatedasatopicthatistobeaccordedspecialattentionandinparticular
• Communicationskillswithparties• Resolvingconflictsituations• Businesscommunicationandprotocolforsecretaries• Ofcourse,areasrelatingtointernal,inter-sectorandexternal
communicationarenolessimportantsothatallareasarein-cluded
1g)withinthethematicunitInternational Cooperation and «European Affairs»,topics:
Topic:No. of
answers
1Preparation for the Accession of RoM to the Euro-pean Union
216
2 EU Legal System and Legislation 166
3Managing Resources Obtained through International Technical Assistance
150
4 European Union 1165 EU Institutions and Decision-making Method 101
- Forms of Additional Functional Education and Training
Thequestionastowhichformsoffurtherfunctionaleducationandtrain-ingwouldbeofthegreatestuseintheperformanceofeverydayworktaskswasansweredbytherespondentsinthefollowingway:
Most effective forms of further functional education and training
1 Seminars 2732 In-Service Training 1723 Study visits for training within institutions outside
RoM 154
4 Workshops 149Total: 748
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Seminarsarementionedasthemosteffectivelearningmethod,whichin-dicatestoaneedofacquiringtheoreticalandpracticalknowledgethroughthepossibilityofexchangeofinformationbetweengreaternumbersofattendees,whichisprovidedbysuchformoftraining.
- Foreign Languages
DataobtainedrelatingtothepartofthequestionnaireinconnectionwiththeissuesconcerningtheforeignlanguageswhichareattachedthehighestpriorityandtheirimprovementshowsnotableinterestofemployeesfortheimprovementoftheEnglishlanguageproficiency.
Foreign languages1 English 1262 Italian 493 German 224 French 215 Spanish 96 Russian 27 Greek 2
- Computer Literacy
DatarelatingtoworkonthePCshowsthatthemajorityoftherespond-ents(70%)successfullyuseMicrosoftWordandInternetwhilefurthertrainingisnecessaryinotherprogrammelanguagessuchasPowerPointandExcel.
Conclusion
Withtheaimofcleardeterminationofspecializedknowledgeandad-ditionalskillsatalllevelsofworkpositions,itisnecessarytodoaprioranalysisofexistinglegislationandbylawsthatspecificallydefinegen-eralandspecialconditionsthatapersonmustmeetinordertocoveracertainworkposition.Thescalewiththeobtaineddatamustprescribe
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specificallywhichadditionalknowledgeandskillsenableanemployeetoperformhis/herworktasksinawayasfunctionalandasefficientaspossible.Obtainedresultswillindicatenecessaryprogrammesoffurthereducationandtraining.Nextstepwouldrelatetotheinterimevalua-tionofworkofcivilservants,whereaspecialaccentshouldbeplacedonattendingspecificprogrammesnecessaryforacquiringofadditionalknowledgeandskills.
Resultsofdatacompiledrelatingtotheevaluationofperformanceofemployeeswillshowmainsegmentsforthepreparationofaplanofpro-fessionaleducationandtrainingofpersonnelinaspecificstateauthority.Resultingplansofprofessionaleducationandtrainingmaybefromtimetotimesupplementedandupdatedattheendofeachyearforthefollow-ingyear.Thusitispossibletomonitorthechangesthatmayoccurasaresultofoperationorrequestsfortheinnovationinwork.
Asfortheissueoftraineeshipperiod,itisnecessarytoestablishwhetherthereisaprecisemethodologyspecifyingtheexaminationprocedureandcriteriaaccordingtowhichtheknowledgeofthecandidateisevaluated,ortheevaluationofthecandidateisperformedbyfreeassessmentoftheexaminer.Iftheevaluationofthecandidatesisdonebyfreeassessmentoftheexaminer,itisnecessarytospecifytheprocedureandcriteriafortheevaluationofcandidatesandtoacquainttheexaminerswiththat.
Asforthefurthertrainingofemployees, it isnecessaryforthestateauthorities,whenpreparingclearlydefinedplansofeducationandtrain-ingoftheiremployees,toensureequalparticipationofallemployeesintheirfurthertrainingandmasteringofdifferentskills.Itisalsousefulfortheinformationonthetypeoffurthereducationandtrainingthatmaybeofferedandwhicharefunctionalfortheperformanceofcertainjobs,tobeclearandaccessibletoallinterestedpersons(throughspecialbrochure,webpage...).
Itisnecessarytoestablishadequate,continuousandavailableprogrammesofemployeetraining,aswellastoplanpreciselythedynamicsofindividualtrainingaccessibletoeveryonethroughvariousformsofinformation
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(websites,brochures...).Atthispoint,itshouldbenotedthatthereisaneedtomakeavailableforthemanagerialstaff,professionaldevelopmentandtrainingprogrammestailoredintermsofsubstanceandtimingac-cordingtotheirspecificworkduties.
Itisnecessarytoreconsiderthepossibilityofequalparticipationofallinstitutionsdealingwiththeprogrammesofprofessionaleducationandtraining(privateinstitutions,NGOs…)increationandimplementationofcivilservicetraining.Inthisway,equalavailabilityofallprogrammesthatmaybeofferedtoemployeesbysuchinstitutionswouldbeprovided.
Thebestwaytocoordinatetheinstitutionsdealingwithprogrammesofprofessionaldevelopmentaswellascompatibilityofsuchprogrammesistoreconsiderthepossibilitiesforestablishmentandorganizationofcentralinstitutiontodealwithsuchmatters.
Itisnecessarytoidentifyauniformmethodologyofconductinganalysesofneedsforthefurthertrainingofcivilservicethatwouldenabledefiningofgoalsoftheeducationandtrainingprogramme,aswellasplanningofthedynamicsofimplementationofanadoptedprogramme.Oneoftheimportantsegmentsisalsothemethodologyandthemodalityofevaluationoftrainingprogrammesthathavebeenimplementedthatmaysuggest:qualityoftraininganddevelopmentcompleted,introductionofnewprogrammes,directionsoffurtherplanningofdevelopment,aswellasthenumberofpersonnelthatshouldundergofurtherdevelop-mentandtraining.
Regardingthehorizontalareasoftraininganddevelopmentofemployees,thereisanindicationoftheneedsofemployeesinstateadministrationauthoritiesforthemonitoringofreformactivities,throughbetterlevelof informationinstateadministration(gettingacquaintedwithnewlegislation)andmodernizationofworkthroughgettingfamiliarwithcomparativesolutionsandacceptanceofgoodpractice.Presenteddatashowaveryexplicitneedofemployeesforfurthertrainingrelatedtotheplanningofprofessionaleducationofemployeesaimedatamoreeffectivedevelopmentofhumanresources.Remarkableinteresthasbeenshownalsoforthetopicssuchas:strategicworkplanninginstateadministra-
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tionauthorities;developmentofprojectsinadministration;financialandbudgetaryaspectsofstateadministrationoperation;roleoftheinforma-tionsysteminstateadministration;communicationskillswithpartiesandresolvingconflictsituations;preparingfortheaccessionofRoMtotheEuropeanUnion;EUlegalsystemandlegislation;managingfundsprovidedthroughinternationaltechnicalassistance;EUinstitutionsanddecision-makingmethod;theEnglishlanguageandcomputerliteracy.
CATALOGUE OF SEMINARS FOR TRAINING OF CIVIL SERVANTS
AND STATE EMPLOYEES
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7. CATALOGUE OF SEMINARS AND OTHER FORMS OF TRAINING – THE TRAINING PROGRAMME (BASED ON ANALYSES)
PROGRAMME CONTENTS
7.�. PUBLIC ADMINISTRATION AND NOVELTIES IN THE SYSTEM OF FUNCTIONING OF STATE ADMINISTRATION AUTHORITIES
SYSTEMIC – LEGAL AFFAIRS OF STATE AUTHORITIES
• BasicconceptsandprinciplesinthefieldofconstitutionalandadministrativelegislationofMontenegro
• Generaladministrativeprocedure• Workandcommunicationofstateauthoritiesandpartiesinan
administrativeprocedure• Firstinstanceandsecondinstancedecidinguponappeal• Enforcementofadministrativeacts• Judicialcontroloflegalityofadministrativedecisions–con-
ductinganadministrativedispute• Inspectioncontrolprocedureandrightsandobligationsof
controlledentities• Thenewcivilservicesystem• Enteringserviceinstateadministrationauthorities• Performanceappraisalofpersonnelinstateadministration• TheLawontheProtectorofHumanRightsandFreedoms• CivilServiceCodeofEthicsasanelementofmodernpublic
management• Comparativeanalysesofinternationallegislation• Nomotechniqueintheprocessofdraftinglawsandotherlegal
acts
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7.2. MANAGEMENT IN STATE ADMINISTRATION AUTHORITIES
MANAGEMENT IN STATE ADMINISTRATION
• Strategicplanningofworkinstateadministrationauthorities• Planningoftrainingofpersonnelinstateadministration• Negotiationandnegotiationskills• Leadershipandmanagementoforganizationalunitsinstate
administration
HUMAN RESOURCES MANAGEMENT IN STATE AUTHORITIES
• Humanresourcesmanagementanddevelopment• ExecutionoftheHRMfunctionandconductinghumanre-sourcespolicywithinthestateadministration• Centralpersonnelrecord• Internallabourmarketrecord
7.3. DRAFTING OF PROJECT PROPOSALS IN STATE ADMINISTRATION
• Draftingofprojectproposalsinstateadministration• Planningoffinancialrequirementsfortherealizationof
projects/budgeting• Projectmanagementinstateadministration
7.4. FINANCIAL AND BUDGETARY ASPECTS OF THE PUBLIC ADMINISTRATION WORK
• Financial-accountingaffairsinstateadministrationauthori-ties
• Publicfinancingsystemandthestatebudget• Thestatebudgetanditsexecution
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7.5. GENERAL AND RELATED TASKS OF STATE ADMINISTRATION AUTHORITIES
• Officemanagement• Publicrelations• Thepurposeoftheinformationsysteminstateadministration
–e-governance
7.6. COMMUNICATION IN STATE ADMINISTRATION
• Conflictresolution• Communicationwithclients/parties• Businesscommunicationandprotocolfortechnicalsecretaries
7.7. INTERNATIONAL COOPERATION AND “EUROPEAN AFFAIRS”
• TheEuropeanUnion• ThelegalsystemandlegalactsoftheEU• Institutionsandmethodofdecision-makingoftheEU• PreparationofaccessionoftheRepublicofMontenegrotothe
EU• Managementofresourcesobtainedthroughinternational
technicalsupport
7.8. OFFICIAL LANGUAGE AT THE WORKPLACE
7.9. FOREIGN LANGUAGES
V TRAINING APPLICATION FORM
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INTRODUCTION
TheHumanResourcesManagementAuthorityisanewstateauthorityestablishedinaccordancewithArticle28oftheRegulationonOrganiza-tionandMethodofOperationoftheStateAdministration(“Off.JournalofRoM”,No.54/04).Themainfunctionsofthisstateauthorityare:
• Monitoringofimplementationoflegislationoncivilservantsandstateemployees;
• Issuingopinionsonactsoninternalorganizationandsystemati-zationofstateauthorities;
• Executionofpublicandinternalannouncementsandpublicvacancynotices forfillingvacancies instateauthoritiesandservices;
• Keepingrecordontheinternallabourmarket(numberofperson-nelinthestateadministrationauthorities,vacantposts,availablehumanresources–e.g.acivilservant’stermofofficehasendedands/hehasnotbeenassignedtoanotherworkpostyetetc.)andothertasksfortheneedsofdevelopmentofthismarket;
• KeepingtheCentralPersonnelRecord(personaldataofperson-nelinthestateadministration–age,maritalstatus,educationallevel,currentjobdescription,promotion,rewardsreceivedforefficientperformance,etc.);
• Performanceoftasksrelatedtoreorganizationofthestatead-ministration(cancellationofexistingandestablishmentofnewstateadministrationauthorities);
• Draftingproposalsforappropriatetrainingprogrammesandotherprogrammesfortheprofessionaldevelopmentofcivilservantsandstateemployees;
• Provisionofprofessionalassistancetothegovernmentrelatedtohumanresourcesmanagementissues;
• Assistingstateauthoritiesintheimplementationofhumanre-sourcespolicy,traianinganddevelopmentofhumanresources.
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ItisanticipatedthattheHumanResourcesManagementAuthority,ascanbeseenfromitsfunctions,performsthemostimportanttaskswithinthefieldofhumanresourcesmanagementand,assuch,representsthecentralbodyinthenewcivilservicesystem.Thisauthorityisnotonlyresponsibleforthemaintenanceofthissystem,butalsoforthedevelop-mentofthehumanresourcessystemwithinthestateadministration.Itsfunctionextendshorizontallyacrosstheentirestateadministration,andinthesameway,therecurrentflowofinformationfromtheentirestateadministrationistobeconcentratedinthisauthority.Theresultofthisflowwillbethecentralpersonnelrecordwhichwillbekeptbythisauthority,andwhichrepreserntsthebasisfortheinternallabourmarketandserveasaniformationbaseforallproceduresrelatingtothestatusofcivilservantsandstateemployees.
Amongother,aprimaryroleoftheHRMAistoconductdevelopmentalpolicyandestablishhumanresoucrsmanagementpracticeintheentirestateadministration.Inaccordancewiththeaforementioned,thisstateauthoritywillhavealeadingroleindefiningandmeetingtheneedsofcivilservantsintrainingandprofessionaldevelopment.
ThiscataloguerepresentsaresultofjointactivitiesoftheHRMAandthePARiMII4�ProjectTeaminidentifyingthetrainingneedsofcivilservantsandstateemployees,aswellasinpreparingthenecessarytrain-ingprogrammes.
Thefollowingdocumentshavebeenusedatdefiningthetrainingpro-grammes:
- Thefactualanalysis„EducationandTraininginCentralAd-ministration”preparedbythePARiM-144ProjectTeam,with
4� PARiMII–»SupporttoPublicAdministrationReform–CentralGovernment«–asupportprojecttothepublicadministrationreforminMontenegro,whichwasfundedbytheEUandmanagedbytheEuropeanAgencyforReconstructionintheperiodfromSeptember2004untilMarch2006.
44 PARiMI–»PublicAdministrationReforminMontenegro«project,fundedbytheEUandmanagedbytheEuropeanAgencyforReconstructionintheperiodfromJuly2002untilJuly2004
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thestatusofthestateadministrationinthisfieldonJuly1st,200�inclusive,and
- Theanalysis“HorizontalAdministrativeFunctionsandTaskswithintheStateAdministrationSystemofMontenegro”,alsopreparedbythePARiMIProjectTeamin2004.
Thefactualanalysis„EducationandTraininginCentralAdministration” hasbeenconductedincooperationwith�4stateauthorities,whichhadbeensubmittedquestionnairesinordertocollecttheinformationneces-saryforthepreparationofatrainingneedsanalysisincivilservice.Basedonthementionedanalyses,thefollowingprioritiesintraininghavebeenidentifiedfordifferentstructures:
• for ministers:planningofworkandstrategicplanning,organiza-tionandoperationoftheadministration,qualityandefficiencyinstateadministrationwork,Europeanaffairsandcomputerliteracy;
• forheadsofstateadministrationauthorities: implementationof legislation, financialmanagement,planningofworkandstrategicplanning,qualityandefficiencyinstateadministrationwork,methodologicalskillsforworkinstateadministrationandcomputerliteracy;
• forotherofficials/functionaries:implementationoflegislation,managementinstateadministration,qualityandefficiencyinstateadministrationworkandcomputerliteracy;
• forsecretaries-generalwithinministries:projectmanagement,humanresourcesmanagement,organizationofthestateadminis-trationwork,qualityandefficiencyinstateadministrationwork,communicationandcomputerskills;
• for deputy heads:implementationoflegislation,budgetman-agement,managementinstateadministration,humanresourcesmanagementandplanningofwork,organizationofthestateadministrationwork,qualityandefficiencyinstateadministra-tionwork,communicationskills,methodologicalskillsforworkinstateadministrationandcomputerliteracy;
• for other managing persons: implementationof legislation,budgetmanagement,financialmanagementandmanagement
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instateadministration,HRmanagementandHRplanning,or-ganizationofstateadministrationwork,qualityandefficiencyinstateadministrationwork,communicationskills,methodologicalskillsforworkinstateadministrationandcomputerliteracy;
• for thecategory“permanent employees”instateadministra-tion:implementationoflegislation,decidinginadministrativeprocedure,budgetmanagement,financialmanagement,plan-ningofwork,organizationofthestateadministration,projectmanagement,qualityandefficiency instateadministrationwork,communicationandITforstateadministrationauthori-ties,methodologicalskillsforworkinstateadministrationandcomputerliteracy;
• for thecategory“temporary employees”instateadministration:organizationofthestateadministration,qualityandefficiencyinstateadministrationwork,IT,methodologicalskillsforworkinstateadministrationandcomputerliteracy;
• fortrainees:implementationoflegislationandorganizationofthestateadministration,qualityandefficiencyinstateadministrationwork,IT,methodologicalskillsforworkinstateadministrationandcomputerliteracy.
Theanalysis“HorizontalAdministrative FunctionsandTaskswithintheStateAdministrationSystemofMontenegro”hasbeenpreparedonthebasisofcurrentlegislation.Thisanalysishelpedustoidentifyallthoseadministrativetasks,theso-called“horizontaltasks”,whicharemoreorlesspresentintheworkofallstateadministrationauthorities.Inotherwords,thisanalysisfacilitatedanoverviewofadministrativetasksperformedbycivilservantsorstateemployeesatthesamehierarchicallevelorofthesameprofession,atdischargingtheirregulardutiesinstateadministrationauthoritiesinaccordancewithadministrativelegislation.
Basedontheresultsofthementionedanalyses,theHumanResourcesManagementAuthorityofMontenegrodefinedtheprioritytrainingpro-grammesformanagingpersonsandcivilservantsandstateemployeesfortheyear2006,whicharepresentedinthefollowingcatalogue.
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7.1. PUBLIC ADMINISTRATION AND NOVELTIES IN THE SYSTEM OF FUNCTIONING OF STATE AUTHORITIES
SYSTEMIC-LEGAL TASKS OF STATE AUTHORITIES
• BASIC CONCEPTS AND PRINCIPLES IN THE FIELD OF CONSTITUTIONAL AND ADMINISTRATIVE LEGISLATION OF MONTENEGRO
PROGRAMME CODE:Lecturer(s):General objectives: trainingofcivilservantsandstateemployees,whohavenolegalbackground,inbasicprinciplesoftheconstitutionalandadministrativesystemoftheRepublicofMontenegro.Specific objectives:
- UpgradingofknowledgeofcivilservantsandstateemployeesinthebasicprinciplesoftheConstitutionalCharteroftheStateUnionofSerbiaandMontenegro,aswellastheconstitutionalstructureoftheRepublicofMontenegro(constitutionalstructureofthestate;systemofprotectionofhumanrightsandbasicfreedoms;theprincipleofconstitutionalityandlegalityofworkoftheexecutivepowerandthestateadministration;theprincipleofdivisionofpower-relationbe-tweentheParliamentoftheRepublicofMontenegro,theGovernmentoftheRepublicofMontenegroandministriesandadministrativeauthorities);
- Upgradingofknowledgeofcivilservantsandstateemployeesintheconstitutionalpositionoftheexecutivebranchandthestateadmin-istration(constitutionalprinciplesandtheirapplicationintheworkoftheexecutivepowerandthestateadministration);Target group:civilservantsandstateemployees,whohavenolegalbackground,aswellastraineespreparedforworkinstateadminis-trationauthorities.Duration:Period of realization:Expenses of the programme per participant:Annotation:
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• GENERAL ADMINISTRATIVE PROCEDURE
PROGRAMME CODE:Lecturer(s):General objective: upgradingofalreadyacquiredknowledgeofcivilservantsandstateemployeesinthemethodofconductingageneraladministrativeprocedureanddecidinginadministrativematters.Specific objectives:
- Upgradingandextensionofknowledgeofcivilservantsandstateemployeesin:1. basicprinciplesofthegeneraladministrativeprocedure;2. efficientconductingofanadministrativeprocedureuntilthe
finaldecision;�. presentationofevidence;4. constituentpartsofadecision;5. repeatofanadministrativeprocedure/retrial;6. executionofadecision;and7. legalremedies;Target group:civilservantsandstateemployeeswhoapplytheLawonGeneralAdministrativeProcedureinperformingtheirregularduties,aswellastraineespreparedforworkinstateadministrationauthorities.Duration:Period of realization:Expenses of the programme per participant:Annotation:
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• WORK AND COMMUNICATION OF STATE AUTHORITIES AND PARTIES IN A GENERAL ADMINISTRATIVE PROCEDURE
PROGRAMME CODE:Lecturer(s):General objective: Informingonandupgradingofexistingknowl-edgeofcivilservantsandstateemployeesonthenoveltiesinthemethodofcommunicationbetweenstateauthoritiesandpartiesinadministrativeprocedures.Specific objectives:
- Upgradeandbroadentheknowledgeofcivilservantsandstateem-ployeesin:1. rightsandobligationsofparties inanadministrativeproce-
dure;2. rulesonthereceptionofpetitionssubmittedbypartiestostate
authorities;�. rulesonthedeliveryofdocumentstopartiesandspecificcases
ofdelivery;- informcivilservantsandstateemployeeson:
1. rulesonsummoningofparties,2. drawingupofrecords,�. proceedingontheoccasionofreviewingofdocumentsand
notificationofpartiesonthecourseoftheprocedure;4. consequencesoferrorsinthedeliveryofdocumentstoaparty;5. rulesonthemaintenanceoforderintheworkofstateauthori-
ties.Target group: civilservantsandstateemployeeswhohavedirectcontactwithparties toaprocedure inperformingtheirregularworkactivities,andwhoapplytheLawonGeneralAdministrativeProcedure,aswellastraineesbeingpreparedforworkinstatead-ministrationauthorities.Duration:Period of realization:Expenses of the programme per participant:Annotation:
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• FIRST INSTANCE AND SECOND INSTANCE DECIDING UPON APPEAL
PROGRAMME CODE:Lecturer(s):General objective: Informingonandupgradingexistingknowledgeofcivilservantsonnoveltiesinthefirstinstanceandsecondinstancedecidinguponappealsinadministrativeprocedures.Specific objectives:
- confirmandupgradetheknowledgeofcivilservantson:1. legalremediesinanadministrativeprocedure,2. competenciesofauthoritiesindecidingonappeals,�. deadlinesandreasonsfordisputingthedecisiononanappeal
aswellasonthecontentsofappeals;4. theproceedingoffirstinstanceauthoritiesuponappeals;5. theproceedingofsecondinstanceauthoritiesuponappeals;6. rulesofproceedinginthecaseofrepeatofanadministrative
procedure;Target group: Civilservantsandstateemployeeswho,inperformingtheirwork,proceedaccordingtotheLawonGeneralAdministrativeProcedure,aswellastraineespreparedfoworkinstateadministra-tionauthorities.Duration:Period of realization:Expenses of the programme per participant:Annotation:
• ENFORCEMENT OF ADMINISTRATIVE ACTS
PROGRAMME CODE:Lecturer(s):General objective: Informingonandupgradingexistingknowledgeofcivilservantsonnoveltiesintheexecutionofadministrativeacts.Specific objectives:
- confirmandupgradetheknowledgeofcivilservantson:1. enforceabilityofadministrativeacts;2. rulesonthereceptionofpetitionssubmittedbypartiestostate
authorities;
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�. rulesondeliveryofdocumentstopartiesandspecificcasesofdelivery;
- informcivilservantsandstateemployeeson:1. consequencesoferrorsinthedeliveryofdocumentstoaparty/
client;2. rulesonsummoningparties,�. drawinguprecordsontheproceedingontheoccasionofre-
viewingdocumentsandnotificationofpartiesonthecourseoftheprocedure;
4. rulesonthemaintenanceoforderintheworkofastateauthorityTarget group:Civilservantsandstateemployeeswho,inperformingtheirdailywork,areindirectcontactwithclientsandwhoproceedaccordingtotheLawonGeneralAdministrativeProcedure,aswellastraineesbeingpreparedforworkinstateadministrationauthorities.Duration:Period of realization:Expenses of the programme per participant:Annotation:
• JUDICIAL CONTROL OF THE LEGALITY OF ADMINISTRATIVE DECISIONS – CONDUCTING AN ADMINISTRATIVE DISPUTE
PROGRAMME CODE:Lecturer(s):General objective: Informingonandupgradingexistingknowledgeofcivilservantsandstateemployeesonnoveltiesintheconductingofanadministrativedispute.Specific objectives:
- confirmandupgradetheknowledgeofcivilservantsandstateem-ployeeson:1. judicialcontroloverthelegalityofadministrativedecisions;2. thesystemofjudicialprotectionwithinanadministrativedis-
puteandthecompetencyofcourts;�. theprocedureofconductinganadministrativedisputeandle-
galremediesintheframeworkofanadministrativedispute;4. theprocedureofexecutionofcourtdecisions;
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Target group: Civilservantswhodecideinsecondinstanceadminis-trativeprocedure,aswellastraineesbeingpreparedforworkinstateadministrativeauthorities.Duration:Period of realization:Expenses of the programme per participant:Annotation:
• INSPECTION CONTROL PROCEDURE AND RIGHTS AND OBLIGATIONS OF THE CONTROLLED ENTITIES
PROGRAMME CODE:Lecturer(s):General objective: Informingonandupgradingexistingknowledgeofcivilservantsandstateemployeesonnoveltiesinthefieldofinspec-tioncontrolandrightsandobligationsofcontrolledentities.Specific objectives:
- confirmandupgradetheknowledgeofcivilservantsandstateem-ployeeson:1. principlesof inspectioncontrolandtasks,duties,authorities
andresponsibilitiesofinspectors;2. theprocedureofconductinginspectioncontrolaswellasspe-
cificactionspertainingtotheinspectioncontrolprocedure;�. theprocedureofexecutionofinspectioncontrol;
Target group: Civil servants who decide in second instance administrative procedure, as well as trainees being prepared for work in state administrative authorities.Duration:Period of realization:Expenses of the programme per participant:Annotation:
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• NEW CIVIL SERVICE SYSTEM
PROGRAMME CODE:Lecturer(s):General objective: InformcivilservantsandstateemployeesontheimplementationofthenewcivilservicesysteminMontenegro.Specific objectives:
- informcivilservantsandstateemployeeson:1. newprinciplesofthecivilservicesystemtheirrights,dutiesand
responsibilities;2. proceduresforenteringservice,aswellasrequirementsstipu-
latedformanagingpositions,howtoacquirecivilservants’andstateemployees’titles;
�. reassignmentprocedure;4. appraisal,promotion,establishmentofcapability,conditions
forterminationofemployment;Target group: Civilservantsandstateemployees,aswellastraineesbeingpreparedforworkinstateadministrationauthorities;Duration:Period of realization:Expenses of the programme per participant:Annotation:
• ENTERING SERVICE IN STATE ADMINISTRATION
AUTHORITIES
PROGRAMME CODE:Lecturer(s):General objective: Informcivilservantsandstateemployeesontherequirementsandprocedureforenteringserviceinstateadministra-tionauthorities.Specific objectives:
- informcivilservantsandstateemployeeson:1. requirementsforenteringemploymentinstateauthorities;2. proceduresoftheinternalannouncement,publicannounce-
ment,publicvacancyannouncement;�. procedureofpreliminaryqualificationassessmentofcandi-
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datesforworkinstateadministrationauthorities;4. procedureofconclusionoftheemploymentcontractandele-
mentsofthecontract;Target group: Civilservantsandstateemployees,aswellastraineesbeingpreparedforworkinstateadministrationauthorities.Duration:Period of realization:Expenses of the programme per participant:Annotation:
• PERFORMANCE APPRAISAL OF PERSONNEL IN STATE ADMINISTRATION
PROGRAMME CODE:Lecturer(s):General objective: Informcivilservantsandstateemployeesontheconditionsandproceduresofperformanceappraisal instateadministration.Specific objectives:
- informcivilservantsandstateemployeeson:1. rulesandproceduresofperformanceappraisal;2. conditionsforpromotiontohighertitles,periodofpromotion
andevaluationmarkessentialforpromotion;�. procedureofpromotiontohighersalarygradesandacknowl-
edgments;4. procedureofestablishmentofcapabilityfortheperformanceof
tasks,aswellasofterminationofemployment/serviceonthegroundsofincapability;
5. workof theAppealsCommissionproceedinguponappealagainstadecisiononrightsanddutiesarisingfromworkandbasedonwork;
Target group: Civilservantsandstateemployees,aswellastraineesbeingpreparedforworkinstateadministration.Duration:Period of realization:Expenses of the programme per participant:Annotation:
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• THE LAW ON THE PROTECTOR OF HUMAN RIGHTS AND FREEDOMS
PROGRAMME CODE:Lecturer(s):General objective: InformcivilservantsandstateemployeesonthefunctionandcompetencesoftheProtectorofHumanRightsandFreedoms.Specific objectives:
- informcivilservantsandstateemployeeson:1. theroleoftheProtectorofHumanRightsandFreedomsand
basicprinciplesanddomainsofhisactivity;2. competenciesoftheProtectorandhisspecialauthoritiesina
judicialprocedure;�. theparticipationoftheProtectorinlegislativeactivities,his
opinionsonproceduresbeforestateauthorities;4. obligationofstateauthoritiestoactupontheProtector’srequest
andtheirobligationtocooperate;Target group: Civilservantsandstateemployees,aswellastraineesbeingpreparedforworkinstateadministrationDuration:Period of realization:Expenses of the programme per participant:Annotation:
• CIVIL SERVICE CODE OF ETHICS AS AN ELEMENT OF MODERN PUBLIC MANAGEMENT
PROGRAMME CODE:Lecturer(s):General objective: Informcivilservantsandstateemployeesonthecivilservicecodeofethicsasanimportantelementofmodernpublicmanagement.Specific objectives:
- informcivilservantsandstateemployeeswiththecodeofconductofcivilservantsandstateemployeesatwork–theCodeofEthicsofCivilServantsandStateEmployees
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Target group: AllstateadministrationpersonnelDuration:Period of realization:Expenses of the programme per participant:Annotation:
• EXECUTION OF COMPARATIVE ANALYSES OF INTERNATIONAL LEGISLATION
PROGRAMME CODE:Lecturer(s):General objective: Informcivilservantsandstateemployeesonmethodsandtechniquesofconductingcomparativeanalysesofinternationallegislation.Specific objectives:
- informcivilservantsandstateemployeesonthemethodology,activi-ties,processesandinstrumentsofconductinganalysesofinternationallegislation;Target group:Civilservantsandstateemployeesworkingondraftinglawsandsecondarylegislation.Duration:Period of realization:Expenses of the programme per participant:Annotation:
• NOMOTECHNIQUE IN THE PROCESS OF DRAFTING LAWS AND OTHER LEGAL ACTS
PROGRAMME CODE:Lecturer(s):General objective: Informcivilservantsandstateemployeesonthemethodsandtechniquesofdraftinglegislation.Specific objectives:
- informcivilservantsandstateemployeeson:1. principlesofdraftinglegislation(principleofclarity,quality
andquantityofstyleofalegalregulation;principleofrelation-
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shipbetweenlinguisticexpressionsandlogicalmeaningofalegalregulation;principleofcomprehensivenessofcontentofalegalregulation);
2. linguisticandstylisticexpressionoflegalregulations;�. logicalexpressionoflegalregulations;4. politicalexpressionoflegalregulations;5. draftingofthefinaltextofalegalregulation;6. formofthelegaltext.Target group:Civilservantsandstateemployeesworkingondraftinglawsandsecondarylegislation.Duration:Period of realization:Expenses of the programme per participant:Annotation:
7.2. MANAGEMENT IN STATE ADMINISTRATION AUTHORITIES
MANAGEMENT IN STATE ADMINISTRATION
• STRATEGIC PLANNING OF WORK IN STATE ADMINISTRATION AUTHORITIES
PROGRAMME CODE:Lecturer(s):General objective: acquaintmanagingpersonswithmethodsandtechniquesofstrategicplanning.Specific objectives:
- informcivilservantsandstateemployeeson:1. typesofplanninginstateadministration;2. purposeoforganizationinstateadministrationandmethodof
definitionofshort-termandlong-termobjectives;�. preparationsforstrategicplanninganddevelopmentofastrate-
gicplanofanadministrativeorganization;
171PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
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4. methodofallocationofresourcesandmechanismsforrealiza-tionofobjectivesfromthestrategicplan;
5. techniquesofdefinitionofshort-termandlong-termactionplans;
6. mobilizationoffunds;7. basicprinciplesandapproachesindecision-making;8. definitionofmechanismsformeasuringachievedresultsand
objectives;9. disbursementplanningmechanisms-budgeting;Target group: managingpersonsinstateadministrationauthoritiesDuration:Period of realization:Expenses of the programme per participant:Annotation:
• PLANNING OF TRAINING OF PERSONNEL IN STATE ADMINISTRATION
PROGRAMME CODE:Lecturer(s):General objective: acquaintcivilservants,stateemployeesandmanag-ingpersonnelwithmethodsandtechniquesofplanningoftrainingofpersonnelinstateadministration.Specific objectives:
- informcivilservantsandstateemployeeson:1. methodsoftrainingneedsassessment;2. planningoftraining;�. mechanismsforsecuringcontinuousprofessionaltraining,4. methodsofassessmentofneedsforadditionalfunctionaltraining;5. mechanismsofimpactassessmentofpersonneltrainingonef-
fectivenessandefficiencyintheiradministrativework;Target group: managingpersonnel,civilservantsandstateemployeesDuration:Period of realization:Expenses of the programme per participant:Annotation:
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• NEGOTIATIONS AND NEGOTIATION SKILLS
PROGRAMME CODE:Lecturer(s):General objective: acquaintmanagingpersonswithmethodsandtechniquesofnegotiationsandnegotiationskills.Specific objectives:
- Betterunderstandingofmanagingpersonsof:1. thenegotiationprocess2. methodsandtechniquesofpreparationfornegotiations;�. strategicthinking;4. thesignificanceofspaceandotherconditionsforconducting
negotiations;5. conductingthenegotiationprocess;6. mechanismsforachievementofthebestsolutionofanegotia-
tion;Target group: managingpersonsinstateadministrationauthori-tiesDuration:Period of realization:Expenses of the programme per participant:Annotation:
• MANAGEMENT OF ORGANIZATIONAL UNITS IN STATE ADMINISTRATION
PROGRAMME CODE:Lecturer(s):General objective: acquaintingwithcontemporarymethodsandtechniquesofmanagementoforganizationalunits.Specific objectives:
- Betterunderstandingofcontemporarymethodsandtechniquesof:1. managementandrepresentationofstateadministrationau-
thorities;2. managementanddirectingofworkofcivilservantsandstate
employees;
17�PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
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�. managementofworkofinternalorganizationalunitsofstateadministrationauthorities–assistancetotheministeri.e.su-periorinmanagingofanadministrativeauthority(principlesofmanagement,methodsofmanagement,managementstylesetc.);
4. leadingofsessionsandmeetingswithinministriesandadmin-istrativeauthoritiesandatthelevelofinter-ministerialworkinggroups(applicationofpresentationtechniquesandrhetoric);
5. coordinationofworkbetweenorganizationalunitsofminis-triesandadministrativeauthorities;
6. coordinationofworkwithotherstateadministrationauthori-ties;
Duration:Period of realization:Expenses of the programme per participant:Annotation:
2 b. HUMAN RESOURCES MANAGEMENT IN STATE ADMINISTRATION AUTHORITIES
• HUMAN RESOURCES MANAGEMENT AND DEVELOPMENT (HRM and HRD)
PROGRAMME CODE:Lecturer(s):General objective: upgradetheunderstandingoftheprocessofHRMandHRD.Specific objectives:
- Betterunderstandingof:1. theprocessofpreparationoforganizationalmeasuresistate
administrationauthorities;2. techniquesofdevelopmentofrecruitmentplansinstateadmin-
istration;�. methodofperformanceappraisalofpersonnelinstateadmin-
istration;
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4. executionoftheprocedureforevaluationofconditionsforpro-motionofpersonnelinstateadministration;
5. executionofrationalizationofpersonnel;6. developmentofawrittenanalysisof thescopeof thework
spherefromtheaspectofneedsinpersonnel;Target group: managingpersons,civilservantsandstateemploy-eesworkinginadministrativeunitsinchargeofhumanresourcespolicy;Duration:Period of realization:Expenses of the programme per participant:Annotation:
• PERFORMANCE OF THE HRM FUNCTION AND CONDUCTING HRM POLICY IN THE STATE ADMINISTRATION
PROGRAMME CODE:Lecturer(s):General objective: upgradetheunderstandingofthefunctionsandmethodsofconductinghumanresourcespolicyinstateadministra-tionauthorities.Specific objectives:
- Betterunderstandingof:1. managementofcivilservicerelationships;2. theprocessofdevelopmentofawrittenanalysisofthescopeof
theworkspherefromtheaspectofneedsinpersonnel;�. theprocedureofconcludingemploymentcontractswithinstate
administration;4. theprocedureoftransferofpersonnelwithinthestateadminis-
trationauthorities;5. issuinginformationonneedsinpersonnel;6. keepingpersonnelrecords;7. thepaymentsystemwithinstateadministration;8. classificationofworkpostsintotariffgroupsandsalarygrades;Target group: managingpersons,civilservantsandstateemployees
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workinginadministrativeunitsinchargeofhumanresourcespolicyandgeneralaffairs;Duration:Period of realization:Expenses of the programme per participant:Annotation:
• CENTRAL PERSONNEL RECORD
PROGRAMME CODE:Lecturer(s):General objective: upgradetheunderstandingofthefunctionsandmethodsofkeepingtheCentralPersonnelRecordwithintheHumanResourcesManagementAuthority.Specific objectives:
- Betterunderstandingof:1. keepingpersonnelrecords;2. issuinginformationonneedsinpersonnel;�. utilizationofdatafromtheCentralPersonnelRecord;Target group: managingpersons,civilservantsandstateemploy-eesworkinginadministrativeunitsinchargeofhumanresourcespolicy;Duration:Period of realization:Expenses of the programme per participant:Annotation:
• INTERNAL LABOUR MARKET RECORD
PROGRAMME CODE:Lecturer(s):General objective: upgradetheunderstandingofthefunctionsandmethodsofkeepingtheInternalLabourMarketRecordwithintheHumanResourcesManagementAuthority.Specific objectives:
- Betterunderstandingof:
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1. keepingtheinternallabourmarketrecord;2. issuinginformationessentialforupdatingtherecord;�. utilizationofdatafromtheInternalLabourMarketRecord;Target group: managingpersons,civilservantsandstateemploy-eesworkinginadministrativeunitsinchargeofhumanresourcespolicy;Duration:Period of realization:Expenses of the programme per participant:Annotation:
7.3. DRAFTING AND IMPLEMENTATION OF PROJECT PROPOSALS IN STATE ADMINISTRATION
• DRAFTING OF PROJECT PROPOSALS IN STATE ADMINISTRATION
PROGRAMME CODE:Lecturer(s):
General objective: acquaintwithandupgradeknowledgeonmethodsandtechniquesofdraftingprojectproposals instateadministration.Specific objectives:
- Acquainttheparticipantswith:1. methodsofdefinitionofprojectelements;2. organizationofthestructureofprojectproposals;�. criteriaforassessmentofeffectivenessofprojects;4. proceduresandmethodsofapplicationforinternationaldona-
tions;5. planningofthefinancialframeworkfortherealizationofthe
projectobjectives;6. projectmanagementtechniques;Target group: managingpersons,civilservantsandstateemployeesworkinginadministrativeunitsinchargeofprojectdesign;Duration:
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Period of realization:Expenses of the programme per participant:Annotation:
• PLANNING OF FINANCIAL REQUIREMENTS FOR THE REALIZATION OF PROJECTS/BUDGETING
PROGRAMME CODE:Lecturer(s):General objective: acquaintwithandupgradeknowledgeonplanningofthebudgetfortheimplementationofprojectsinstateadministra-tion.Specific objectives:
- Acquainttheparticipantswith:1. methodsofdefinitionofeconomicaspectsofprojectsinstate
administration;2. projectplanning;�. conductingprojectbenefitanalyses;4. typesofexpenditureswithinaproject;5. projectbudgetplanning;6. analysisoffinancialeffectivenessofimplementationofaproj-
ect;Target group: civilservantsandstateemployeesworkinginadmin-istrativeunitsinchargeofprojectdesignandfinancialanalyses;Duration:Period of realization:Expenses of the programme per participant:Annotation:
• PROJECT MANAGEMENT IN STATE ADMINISTRATION
PROGRAMME CODE:Lecturer(s):General objective: acquaintwithandupgradetheoreticalknowledgeonprojectmanagementmethods.Specific objectives:
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- Acquainttheparticipantswith:1. basicconceptsoftheprojectstructure;2. projectimplementationphases;�. projectmanagement;Target group: managingpersons,civilservantsandstateemployeesworkinginadministrativeunitsinchargeofprojectdesign;Duration:Period of realization:Expenses of the programme per participant:Annotation:
7.4. FINANCIAL AND BUDGETARY ASPECTS OF THE OPERATION OF STATE ADMINISTRATION
• FINANCIAL – ACCOUNTING TASKS IN STATE ADMINISTRATION AUTHORITIES
PROGRAMME CODE:Lecturer(s):General objective: Upgradeknowledgeonperformanceoffinancial-accountingtasksinstateadministrationauthorities.Specific objectives:
- Upgradeknowledgerelatingto:1. keepingprescribedanduniformrecords,2. determinationofannualwriting-offratesofmaterialandnon-
materialinvestments,�. distributionofannualwriting-offrates,4. writingofffinancialinvestments,5. permanentwritingoffofshort-termobligations,6. definitionofinterestratesanddifferencesintheexchangerate
inrelationtocollectedreceivablesandsettledobligations.Target group: civilservantsandstateemployeesworkinginadmin-istrativeunitsinchargeoffinancialandaccountingtaskswithinastateauthority;Duration:
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Period of realization:Expenses of the programme per participant:Annotation:
• PUBLIC FINANCES SYSTEM AND THE STATE BUDGET
PROGRAMME CODE:Lecturer(s):General objective: Upgradeknowledgeonthepublicfinancessystemandthestatebudget.Specific objectives:
- Upgradeknowledgerelatingto:1. publicfinances,2. thestatebudget,�. draftingofproposalsforbudgetdisbursements,4. interimfinancingperiod,5. principleofpurposeorientedpublicexpenditures,6. applicationofthebasicanalyticalapparatus.Target group: civilservantsandstateemployeesworkinginadmin-istrativeunitsinchargeoffinancialandaccountingtaskswithinastateauthority;Duration:Period of realization:Expenses of the programme per participant:Annotation:
• THE STATE BUDGET AND ITS EXECUTION
PROGRAMME CODE:Lecturer(s):General objective: upgradeknowledgeonthepublicfinancessystemandthestatebudget.Specific objectives:
- Upgradeknowledgerelatingto:1.statebudget,2.executionofthestatebudget,
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�.applicationmethodsofthestatebudgetrevenues,4.methodsoffinancingthesalariesofstateadministrationperson-nel,5.methodsofopeningandclosingofaccountsofbudgetbeneficiar-ies,6.proceduresofpaymentfromthestatebudget,7.preparationofdocumentationandobtainingtheapprovalfromtheMinistryofFinanceforpaymentsfromthestatebudget,8.auditandinspectioncontrolofbudgetbeneficiaries.Target group: civilservantsandstateemployeesworkinginadmin-istrativeunitsinchargeoffinancialandaccountingtaskswithinastateauthorityaswellastrainees;Duration:Period of realization:Expenses of the programme per participant:Annotation:
7.5. GENERAL AND RELATED TASKS IN STATE ADMINISTRATION
• OFFICE MANAGEMENT
PROGRAMME CODE:Lecturer(s):General objective: developknowledgeofstateemployeesinofficemanagementinstateadministrationauthorities.Specific objectives:
- Developknowledgerelatingto:• proceduresinofficework;• receiptofdocumentsandrequests,summoningpartiestoan
administrativeprocedure;• classificationofmaterialsandadministrativematterswithin
ministriesandadministrativeauthorities;• organizationofthearchiveanddocumentation;
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• keepingrecordsanddeliveryofmail;• archivingofdocumentation;Target group: stateemployeesandpersonsresponsibleforarchivingdocumentation,aswellastraineesbeingpreparedforworkinstateadministrationauthorities.Duration:Period of realization:Expenses of the programme per participant:Annotation:
• PUBLIC RELATIONS
PROGRAMME CODE:Lecturer(s):General objective: upgradingknowledgeandskillsinpubicrelationactivities.Specific objectives:
- upgradeknowledgeandskillsrelatingto:1. publicappearances,2. conductingapresentation,�. preparationofpressconferencesandofficialannouncements,4. informingthegeneralpublicontheworkofastateadministra-
tionauthority,5. organizationandexecutionofmediacampaigns,promotionof
activitiesofadministrativeauthorities,6. archivingofmaterial.Target group: managingpersonsandcivilservants inchargeofpublicrelations;Duration:Period of realization:Expenses of the programme per participant:Annotation:
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• THE PURPOSE OF THE INFORMATION SYSTEM IN STATE ADMINISTRATION – E-GOVERNANCE
PROGRAMME CODE:Lecturer(s):General objective: acquaintwithandupgradeknowledgeontheroleandpurposeoftheinformationsysteminstateadministration,theso-callede-governance.Specific objectives:
- acquaintcivilservantsandstateemployeeswith:1. ITterminologyinstateadministration,2. creationofanITsystemforstateauthorities;�. theimportanceofthedevelopmentofanITsystemwiththe
aimofsupportingthedecisionmakingprocess:a. businesssystemsandtheirenvironments,b. contemporaryadministrativeterms,c. roleofinformationinthemanagementprocess,d. ITsupportinthemanagementprocess.
4. electronicdataprocessing,5. validityoftheelectronicsignature.Target group: Managingpersonnel,civilservantsandstateemploy-ees;Duration:Period of realization:Expenses of the programme per participant:Annotation:
18�PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
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7.6. COMMUNICATION IN STATE ADMINISTRATION
• RESOLUTION OF CONFLICT SITUATIONS
PROGRAMME CODE:Lecturer(s):General objective: upgradeofcivilservants’andstateemployees’skillsinresolvingconflictsituationsandcommunicationtechniquesthatenabletheresolutionofsuchsituations.Specific objectives:
- informcivilservantsandstateemployeeson:1. typesofconflictsituations,2. reasonsforoccurrenceofconflictsituations;�. importanceandmethodofcommunicationinconflictsitua-
tions,4. techniquesandmethodsofproductiveresolutionofconflicts;Target group: Managingpersonnel,civilservantsandstateemploy-ees.Duration:Period of realization:Expenses of the programme per participant:Annotation:thisprogrammeisparticularlyrecommendedtoperson-nelinstateauthoritieswhoseregularworkinvolvesdirectcontactwithclients/parties.
• SKILLS IN COMMUNICATION WITH CLIENTS
PROGRAMME CODE:Lecturer(s):General objective: upgradecivilservants’andstateemployees’skillsincommunicatingwithclients/parties.Specific objectives:
- informcivilservantsandstateemployeeson:1. communicationstyles,2. significanceofnon-verbalcommunication,�. adjustmentofcommunicationtodifferentstyles,
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4. howtoshowtheclient/partythatweareinterestedinhis/herissue,
5. whatisfeedbackinformationandhowtoobtainit,6. skillsinposingquestions,7. skillsinconductinginterviewsandmeetings,8. skillsinpublicappearances.Target group: Civilservantsandstateemployees.Duration:Period of realization:Expenses of the programme per participant:Annotation:thisprogrammeisparticularlyrecommendedtoperson-nelinstateauthoritieswhoseregularworkinvolvesdirectcontactwithclients/parties.
• OFFICIAL COMMUNICATION AND PROTOCOL FOR TECHNICAL SECRETARIES
PROGRAMME CODE:Lecturer(s):General objective: upgradetechnicalsecretaries’skillsincommunica-tionwithclients/partiesandmethodofmanagingtheprotocol.Specific objectives:
- Acquaintwith:1. elementsofbusinesscommunication,2. rulesofverbal,writtenandtelephonecommunication,�. partiesincommunicationandhowtocommunicatewithde-
mandingclients/parties,4. howtopolitelyexpresscriticismandhowtoovercomeunpleas-
antcommunication,5. overcomingofconflictsincommunicationwithclients/parties,6. receptionofclients/parties,7. elementsofbusinessprotocol,8. basicrulesofEuropeanetiquette,9. preparationofmeetings.Target group: Technicalsecretariesinstateadministrationauthori-ties.
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Duration:Period of realization:Expenses of the programme per participant:Annotation:
7.7. INTERNATIONAL COOPERATION AND THE SO-CALLED “EUROPEAN AFFAIRS”
• THE EUROPEAN UNION
PROGRAMME CODE:Lecturer(s):General objective: upgradetheoreticalknowledgeofcivilservantsandstateemployeesontheEUanditsfunctioning.Specific objectives:
- AcquaintwiththefunctioningandoperationoftheEU,bypresent-ing:1. theoriginsoftheEU,2. theconceptandsignificanceoftheEUintegrationprocess,�. EUlegislation,4. institutionsoftheEU,5. variousassistanceprogrammesof theEU to themember
states,6. variousassistanceprogrammesoftheEUtocountriesprepar-
ingforEUaccession,7. policiesoftheEU,8. EUenlargement.Target group: Managingpersonnel,civilservantsandstateemploy-ees.Duration:Period of realization:Expenses of the programme per participant:Annotation:
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• THE LEGAL SYSTEM AND LEGAL ACTS OF THE EU
PROGRAMME CODE:Lecturer(s):General objective: upgradeknowledgeofmanagingpersonnel,civilservantsandstateemployeesonthelegalsystemandlegalactsoftheEU.Specific objectives:
- Acquaintwith:1. thelegalsystemoftheEU,2. basicprinciplesoftheConstitutionoftheEU,�. harmonizationofnationallegislationwithEUstandards,4. unificationofEUlaw;Target group: Civilservantsandstateemployees.Duration:Period of realization:Expenses of the programme per participant:Annotation:
• INSTITUTIONS AND METHOD OF DECISION MAKING OF THE EUROPEAN UNION
PROGRAMME CODE:Lecturer(s):General objective: upgradeknowledgeofcivilservantsandstateemployeesonEUinstitutions,theirfunctioningandmethodsofdecision-making.Specific objectives:
- Acquaintwiththefunctioningandoperationaswellascooperationamongthefollowinginstitutions:1. Europeanparliaments,2. CounciloftheEU,�. EUcommissions,4. EuropeanCourtofJustice,5. EuropeanFinancialCourt,6. EuropeanOmbudsman,
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7. EuropeanCouncil,8. EconomicandSocialCouncil,9. EuropeanCentralBank,10. RegionalCommitteeTarget group: Managingpersonnel,civilservantsandstateemployees.Duration:Period of realization:Expenses of the programme per participant:Annotation:
• PREPARATION OF ACCESSION OF MONTENEGRO TO THE EU
PROGRAMME CODE:Lecturer(s):General objective: upgradeofcivilservants’andstateemployees’knowledgeonactivitiesessentialforthepreparationofaccessionofMontenegrototheEU.Specific objectives:
- Acquaintwith:1. activitiesessentialforpreparationofaccessionofMontenegro
totheEU,2. processofnegotiationsandpreparationoflegalactsessential
foraccession,�. legalsystemanditsharmonizationtoEUlegislation,4. organizationalpreparations,5. consequencesofEUaccession.Target group: Managingpersonnel,civilservantsandstateemploy-ees.Duration:Period of realization:Expenses of the programme per participant:Annotation:
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• LEADERSHIP AND MANAGEMENT OF RESOURCES OBTAINED THROUGH INTERNATIONAL TECHNICAL SUPPORT
PROGRAMME CODE:Lecturer(s):General objective: upgradingofknowledgeofmanagingpersonnel,civilservantsandstateemployeesonmethodsofmanagementoffundsobtainedthroughinternationaltechnicalsupport.Specific objectives:
- Informingon:1. internationaltechnicalsupportprogrammes,2. proceduresandconditionsforapprovalofinternationaltechni-
calsupport,�. proceduresofmanagementofinternationaltechnicalsupport;Target group: Managingpersonnel,civilservantsandstateemploy-ees.Duration:Period of realization:Expenses of the programme per participant:Annotation:
7.8. OFFICIAL LANGUAGE AT THE WORKPLACE
7.9. FOREIGN LANGUAGES
189PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
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V TRAINING APPLICATION FORM
APPLICATION FOR PARTICIPATION IN A TRAINING PROGRAMME
PROGRAMME:___________________________________________________
CODE:_______________ PERIOD OF REALIZATION: _____________________Name and family name of the ap-plicant:
Contact details:
Tel.: _________________________________Address: __________________________________________________________________
E-mail: _______________________________
Školska sprema: SE UNI Postgrad PhD
Current position: managing person civil servant state employee
Administrative authority: Seat of the administrative authority:
Tel.: _________________________________Address: __________________________________________________________________
E-mail: _______________________________
Expenses of the training will be borne by: applicant personally administrative authority other (sponsor/donor): ____________________________________________ (title of institution)
Coctact person: ____________________Address: __________________________Tel/fax: ____________________________E-pošta: ___________________________
We hereby confirm that the training programme is of importance for efficient and effective performance of tasks in the administrative authority.
Place__________________date______________
______________________________ ______________________________
signature of the applicant signature of the superior(stamp)
ANNEXES
192 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ANNEXES
19�PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ANNEXES
8. A
NN
EXB
. ED
UC
ATIO
N, F
UN
CTI
ON
AL
AN
D A
DV
AN
CED
TR
AIN
ING
AU
THO
RITY
: ___
____
____
____
____
____
____
____
____
____
____
____
____
____
____
____
____
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____
____
____
B.1
ED
UC
ATI
ON
AL
STR
UC
TUR
E O
F TH
E P
ERSO
NN
EL
1. W
hat i
s th
e cu
rren
t situ
atio
n in
the
field
of e
duca
tion
of p
erso
nnel
(the
sta
te a
utho
rity
incl
udin
g al
l its
uni
ts)
Educ
ation
al le
vel
a) offi
cials/
func
tiona
ries
b) m
anag
ing p
erso
nsc)
perso
nnel
d) tr
aine
es e)
TOTA
La.1
min
ister
a.2 h
ead
of a
state
au
thor
ity
a.3 ot
her
b.1 s
ecre
tary
-ge
nera
l of a
n au
thor
ity
b.2 de
puty
he
ad
b.3 m
anag
er
of an
orga
n.
unit
c.1 pe
rma-
nent
c.2
tem
po-
rary
1. do
ctor
ate
2. po
stgra
duat
e deg
ree
3. sp
ecial
izatio
n
4. un
iversi
ty de
gree
5. h
ighe
r edu
catio
n (2
year
s)6.
seco
ndar
y edu
catio
n
7. se
cond
ary v
ocat
ional
edu-
catio
n (q
ualif
ied
– hi
ghly
quali
fied w
orke
r)8.
ele
men
tary
ed
u-
catio
n9.
oth
er
10. T
OTA
L
194 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ANNEXES
2.
How
man
y em
plo
yees
do
not
mee
t th
e st
ipul
ated
requ
irem
ents
for
the
pos
t th
ey c
over
acc
ordi
ng to
the
act
on
inte
rnal
org
aniz
atio
n an
d sy
stem
atiz
atio
n?
Educ
ation
al le
vel
a) m
anag
ing p
erso
nsb)
perso
nnel
c) TO
TAL
a.1 se
creta
ry-
gene
ral o
f an
auth
ority
a.2 de
puty
hea
da.3
man
ager
of
an or
gan.
unit
b.1 pe
rman
ent
b.2 te
mpo
rary
1 doc
tora
te
2 pos
tgra
duat
e deg
ree
3 spe
cializ
atio
n
4 uni
versi
ty de
gree
5 hig
her e
duca
tion
(2
year
s)6 s
econ
dary
educ
atio
n
7 sec
onda
ry vo
catio
nal
educ
atio
n (q
ualifi
ed –
hig
hly q
uali-
fied w
orke
r)8 e
lemen
tary
educ
atio
n
9 oth
er
10 TO
TAL
195PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ANNEXES
1.
How
man
y em
ploy
ees a
re c
urre
ntly
taki
ng e
duca
tion
in o
rder
to a
chie
ve a
hig
her e
duca
tiona
l lev
el, t
he e
duca
tion
bei
ng a
ssoc
iate
d w
ith th
e re
quire
men
ts o
f the
ir w
ork
pos
t whi
le a
) the
adm
inis
trat
ive
auth
orit
y ha
s co
nclu
ded
wit
h th
e em
plo
yee
a co
ntra
ct o
n fin
anci
ng t
he e
duca
tion
(+
); b
) th
e ad
min
. aut
hori
ty h
as n
ot c
oncl
uded
a
cont
ract
on
finan
cing
the
educ
atio
n w
ith th
e em
plo
yee(
–)?
Educ
ation
al le
vel
a)offi
cials/
func
tiona
ries
b) m
anag
ing p
erso
nsc)
perso
nnel
d) TO
TAL
a.1 m
inist
er
a.2
head
of a
state
auth
or-
ity
a.3 o
ther
b.1 se
creta
ry-
gene
ral o
f an
auth
ority
b.2 de
puty
he
ad
b.3
man
ager
of
an or
gan.
un
it
c.1 pe
rma-
nent
c.2te
mpo
rary
0 co
ntra
ct+
–+
–+
–+
–+
–+
–+
–+
–+
–1 d
octo
rate
2 pos
tgra
duat
e deg
ree
3 spe
cializ
atio
n
4 uni
versi
ty de
gree
5 hig
her e
duca
tion
(2
year
s)6 s
econ
dary
educ
atio
n
7 sec
onda
ry vo
catio
nal
educ
atio
n (q
ualifi
ed –
hig
hly q
uali-
fied w
orke
r)8 e
lemen
tary
educ
atio
n
9 oth
er
10 TO
TAL
196 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ANNEXES
5
How
man
y em
ploy
ees a
re c
urre
ntly
taki
ng e
duca
tion
in o
rder
to a
chie
ve a
hig
her e
duca
tiona
l lev
el o
n th
eir o
wn
initi
ativ
e (t
he e
duca
tion
is n
ot a
ssoc
iate
d w
ith th
e re
quire
men
ts o
f the
wor
k p
ost)
whi
le: a
) the
adm
inis
trat
ive
auth
orit
y ha
s co
nclu
ded
with
the
emp
loye
e a
cont
ract
on
finan
cing
the
educ
atio
n (+
); b
) the
adm
in. a
utho
rity
has
not c
oncl
uded
a c
ontr
act o
n fin
anci
ng th
e ed
ucat
ion
with
the
emp
loye
e(–)
?
Educ
ation
al le
vel
a)of
ficial
s/fun
ction
aries
b)
man
aging
per
sons
c)pe
rson
nel
d) TO
TAL
a.1 m
inist
era.2
hea
d of
a sta
te
auth
ority
a.3 ot
her
b.1 se
creta
ry-
gene
ral o
f a
state
auth
ority
b.2 de
puty
he
ad
b.3 m
anag
er of
an
8org
. uni
t
c.1 pe
rma-
nent
c.2 te
mpo
-ra
ry
0 Co
ntra
ct+
–+
–+
–+
–+
–+
–+
–+
–+
–1 d
octo
rate
2 pos
tgra
duat
e deg
ree
3 spe
cializ
atio
n
4 uni
versi
ty de
gree
5 hig
her e
duca
tion
(2
year
s)6 s
econ
dary
educ
atio
n
7 sec
onda
ry vo
catio
nal
educ
atio
n (q
ualifi
ed –
hi
ghly
quali
fied w
orke
r)8 e
lemen
tary
educ
atio
n
9 oth
er
10 TO
TAL
197PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ANNEXES
5 Is
ther
e a
curr
icul
um fo
r add
ition
al tr
aini
ng in
the
stat
e au
thor
ity
whi
ch c
oncl
uded
a c
ontr
act o
n fin
anci
ng th
e tr
aini
ng fo
r the
per
sonn
el?
1
- YES
2 -
NO
6.
If th
e an
swer
to q
uest
ion
No.
5 is
NO
, ple
ase
stat
e w
hy th
ere
is n
o tr
aini
ng c
urric
ulum
?
YES
NO
a) th
ere i
s no n
eed
12
b) th
e aut
horit
y has
no r
esou
rces t
o fina
nce t
he ed
ucat
ion
of th
e per
sonn
el 1
2
c)oth
er1
2
Exte
nsio
n of
the
trai
ning
per
iod
for t
rain
ees
7.
Wha
t is
the
num
ber
of t
rain
ees
who
se t
rain
ing
per
iod
had
bee
n ex
tend
ed in
the
per
iod
bet
wee
n Ja
nuar
y 1,
20
00 a
nd D
ecem
ber
31,
200
2 in
acc
orda
nce
with
the
law
, and
how
man
y tr
aine
es p
asse
d th
e p
rofe
ssio
nal e
xam
in
the
first
att
emp
t?
Educ
ation
al le
vel
a) nu
mbe
r of a
ll tra
inee
sb)
num
ber o
f tra
inee
s with
exte
nded
tra
inin
g per
iod
c) nu
mbe
r of t
rain
ees w
ho pa
ssed
the
prof
essio
nal e
xam
in th
e first
atte
mpt
1 u
nive
rsity
degr
ee
2 hig
her e
duca
tion
(2 ye
ars)
3 sec
onda
ry ed
ucat
ion
4 sec
onda
ry vo
catio
nal e
duca
tion
(qua
lified
- hi
ghly
quali
fied)
5 oth
er
6 TO
TAL
198 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ANNEXES
B.2
Ad
dit
ion
al q
ual
ifica
tio
n o
f per
son
nel
1.
How
man
y em
plo
yees
hav
e p
asse
d a
pro
fess
iona
l exa
m a
nd w
hich
typ
e of
exa
m?
Type
of pr
ofes
siona
l ex
am
a) offi
cials/
func
tiona
ries
b) m
anag
ing p
erso
nsc)
perso
nnel
d) tr
aine
ese)
TOTA
La.1
m
inist
er
a.2 h
ead
of a
state
au
thor
ity
a.3 ot
her o
f-fic
ial
b.1 se
creta
ry-
gene
ral o
f a
state
auth
ority
b. 2 d
eput
y he
ad
b.3 m
anag
er
of an
org.
un
it
c.1 pe
rma-
nent
c.2 te
mpo
-ra
ry
1 jud
icial
exam
2 pro
fess
iona
l exa
m
for w
ork i
n sta
te ad
-m
inist
ratio
n3 o
ther
4 TO
TAL
2.
How
man
y em
ploy
ees h
ave
not y
et p
asse
d th
e pr
ofes
sion
al e
xam
stip
ulat
ed a
s a c
ondi
tion
for w
ork
on a
spec
ific
wor
k p
ost,
and
whi
ch ty
pe
of e
xam
?
Type
of pr
ofes
siona
l ex
am
a) offi
cials/
func
tiona
ries
b) m
anag
ing p
erso
nsc)
perso
nnel
d) tr
aine
ese)
TOTA
La.1
m
inist
era.2
hea
d of a
sta
te au
thor
itya.3
othe
r offi
cial
b.1 se
creta
ry-
gene
ral o
f a
state
auth
ority
b.2 de
puty
he
ad
b.3 m
anag
er
of an
org.
un
it
c.1
perm
a-ne
nt
c.2 te
mpo
-ra
ry
1 jud
icial
exam
2 pro
fess
iona
l exa
m
for w
ork i
n sta
te
adm
inist
ratio
n3 o
ther
4 TO
TAL
199PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ANNEXES
3.
Whi
ch a
re th
e ar
eas
in w
hich
per
sonn
el o
f the
sta
te a
utho
rity
was
add
ition
ally
trai
ned
in th
e p
erio
d fr
om Ja
nu-
ary
1, 2
000
to D
ecem
ber
31,
200
2?
desc
riptio
n of t
he tr
aini
ng ar
eaa)
officia
ls/fu
nctio
narie
sb)
man
agin
g per
sons
c) pe
rsonn
eld)
tra
inee
se)
TO
TAL
a.1
min
ister
a.2 h
ead o
f a
state
auth
ority
a.3 ot
her
officia
lb.1
secre
tary
-gen
eral
of a
state
auth
ority
b.2 de
puty
he
adb.3
man
ager
of
an or
g. un
itc.1
perm
a-ne
ntc.2
tem
-po
rary
A. H
ORIZ
ONTA
L TRA
ININ
G AR
EAS
1 Dra
fting
of le
gisla
tion
2 Dec
idin
g in
adm
inist
rativ
e pro
cedu
re3 B
udge
t man
agem
ent
4 Fin
ancia
l man
agem
ent
5 Pro
ject m
anag
emen
t6 M
anag
emen
t in
state
adm
inist
ratio
n7 H
uman
reso
urce
s man
agem
ent
8 Plan
ning
of w
ork a
nd st
rate
gic p
lanni
ng9
Orga
niza
tion
and
oper
atio
n of
the
state
ad
min
istra
tion
10 Q
ualit
y and
efficie
ncy
11 Co
mm
unica
tion
skill
s12
IT in
adm
in. a
utho
rities
13 Eu
rope
an aff
airs
14 M
etho
dolo
gica
l skil
ls15
Com
pute
r lite
racy
B. FO
REIG
N LA
NGUA
GES
16 En
glish
17 G
erm
an
18 Fr
ench
19 It
alian
20 Sp
anish
21 R
ussia
n22
TOTA
L
200 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ANNEXES
4.
Whi
ch tr
aini
ng a
reas
and
sub
ject
s ar
e m
ost i
mp
orta
nt fo
r effi
cien
t and
eff
ectiv
e op
erat
ion
of s
tate
aut
horit
ies
and
thei
r per
sonn
el?
Train
ing c
onte
nts
a) offi
cials/
func
tiona
ries
b) m
anag
ing p
erso
nsc)
perso
nnel
d) tr
ain-
ees
a.1 m
inist
era.2
hea
d of a
sta
te au
thor
itya.3
othe
r offi
cial
b.1 se
creta
ry-g
ener
al of
a sta
te au
thor
ityb.2
depu
ty
head
b.3 m
anag
er
of an
org.
unit
c.1 pe
rman
ent
c.2 te
mpo
-ra
ryA.
HOR
IZON
TAL
TRAI
NING
ARE
ASDr
aftin
g of l
egisl
atio
n De
cidin
g in
adm
inist
rativ
e pr
oced
ure
Budg
et m
anag
emen
tFin
ancia
l man
agem
ent
Proj
ect m
anag
emen
tM
anag
emen
t in
stat
e ad
-m
inist
ratio
nHu
man
reso
urce
s man
age-
men
tPl
anni
ng o
f wor
k and
stra
-te
gic p
lanni
ngOr
gani
zatio
n and
oper
atio
n of
the s
tate
adm
inist
ratio
nQu
ality
and e
fficie
ncy
Com
mun
icatio
n sk
ills
IT in
adm
in. a
utho
rities
Euro
pean
affair
sM
etho
dolo
gica
l skil
lsCo
mpu
ter l
itera
cyB.
FOR
EIGN
LAN
GUAG
ESEn
glish
1616
1616
1616
1616
16Ge
rman
1717
1717
1717
1717
17Fr
ench
1818
1818
1818
1818
18Ita
lian
1919
1919
199
1919
19 Sp
anish
2020
2020
2020
2020
20 R
ussia
n21
2121
2121
2121
2121
201PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ANNEXES
Res
ourc
es a
lloca
ted
for e
duca
tion
and
trai
ning
of p
erso
nnel
5.
Wha
t is
the
amou
nt o
f de
fact
o al
loca
ted
reso
urce
s an
d ne
cess
ary
reso
urce
s in
tend
ed fo
r edu
catio
n an
d tr
ain-
ing
of p
erso
nnel
in th
e st
ate
auth
orit
y?
Avai
labl
e res
ource
s
a) offi
cials/
func
tiona
ries
b) m
anag
ing p
erso
nsc)
perso
nnel
d) tr
ain-
ees
e) TO
TAL
(in E
UR)
a.1
min
ister
a.2 h
ead o
f a
state
auth
ority
a.3 ot
her
officia
l
b.1 se
creta
ry-
gene
ral o
f a
state
auth
ority
b.2 de
puty
he
adb.3
man
ager
of
an or
g. un
itc.1
per-
man
ent
c.2 te
m-
pora
ry
A. SP
ENT I
N 20
02
1 edu
catio
n
2 tra
inin
g
3 TO
GETH
ERB.
PLA
NNED
FOR
2003
1 edu
catio
n
2 tra
inin
g
3 TO
GETH
ERC.
DE F
ACTO
NEE
DS FO
R 20
03
1 edu
catio
n
2 tra
inin
g
3 TOT
AL
202 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ANNEXES
6.
Whi
ch p
erm
anen
t ci
vil s
ervi
ce t
rain
ing
inst
itutio
ns i.
e. o
rgan
izat
ions
per
form
tra
inin
g fo
r p
erso
nnel
and
for
whi
ch c
ateg
ory
of e
mp
loye
es a
re th
eir s
ervi
ces
mos
t fre
quen
tly
used
?
orga
niza
tion
a) offi
cials/
func
tiona
ries
b) m
anag
ing p
erso
nsc)
perso
nnel
d) tr
aine
esa.1
m
inist
era.2
hea
d of a
sta
te au
thor
itya.3
othe
r offi
cial
b.1 se
creta
ry-
gene
ral o
f a st
ate
auth
ority
b.2 de
puty
he
adb.3
man
ager
of
an or
g. un
itc.1
per-
man
ent
c.2 te
m-
pora
ry
The s
tate
auth
ority
’s ow
n tra
inin
g uni
t In
tern
atio
nal o
rgan
iza-
tions
Facu
lty of
Law
Facu
lty of
Econ
omy
Othe
r sch
ool, i
.e. or
gani
-za
tion
priva
te or
gani
zatio
n
othe
r
20�PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ANNEXES
B.3 The current system of personnel training
Planning of training
1. How do you plan the training for personnel in the state authority?
Planning method: YES NOa. Do you plan the personnel training? 1 2b. Do you have a medium-term (3 - 5 yrs.) personnel training plan? 1 2c. Do you have a short-term (annual) draft personnel training plan? 1 2d. Do you have a responsible person in charge (permanently or predominantly) of only personnel training?
1 2
e. Is the training of personnel and their development planned by the heads of the internal organizational units?
1 2
f. Is the training of personnel and their development planned centrally in the personnel (or other) department of the state authority?
1 2
Personnel Training Needs Assessment
2. Do you systematically or regularly perform needs assessment for training of personnel?
1 YES → 4. question 2 NO → 3. question
3. Why is training needs assessment not performed?
There is no need 1There are no resources available 2other 3
204 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ANNEXES
4. How do you assess the training needs of your personnel?Method of personnel training needs assessment: YES NOa. By means of a regular annual questionnaire filled by all employees 1 2b. The managers of internal organizational units collect data from employees who desire to attend additional training
1 2
c. The managers of internal organizational units determine which employees need additional training
1 2
d. Employees suggest the form and contents of additional training 1 2e. The personnel department proposes to the managers of internal organizational units different possibilities of training of the personnel in their units
1 2
f. The training needs analysis is performed by external organizations specialized for it 1 2
5. Is there a catalogue of necessary knowledge and skills required for the performance of tasks of different work posts for different groups of em-ployees, in the state authority if yes, for which?
1. 1 YES → 6. question. 2 NO → 7. question
6. For which work posts exists a catalogue of necessary knowledge and skills?
YES NOManaging persons 1 2Highest categories of civil servants 1 2For all personnel 1 2
7. a) Why does such a catalogue not exist?
Not necessary 1other 2
b) Other reason for the non-existence of the catalogue?___________________________________________________________________________________________________________________
205PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ANNEXES
Evaluation of effectiveness of performed additional training of personnel
8. Does the state authority have a system for evaluation of effectiveness of performed additional training of personnel?
1 YES → 10. question 2 NO→ 9. question
9. a) Why does such a system not exist?
Not necessary 1other 2
b) Other reason for the non-existence of the above mentioned system? _____________________________________________________________
__________________________________________________________
10. Who is in charge of monitoring and determination of effectiveness of personnel training?
a) Options:Managing person 1Employee him/herself 2Employee’s colleagues 3Personnel department 4clients 5Training provider 6No one 7other 8
11. How do you determine the effectiveness of the personnel training?
a)Options:By means of a questionnaire after completion of the personnel training 1By means of verbal information of the superior by his/her personnel after completion of the training 2By means of monitoring of the employee’s subsequent effectiveness on duty 3By means of reports on the completed training by the employee 4
The employee verbally informs his/her colleagues on the novelties relating to the training 5It is not determined at all 6
206 PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ANNEXES
12. Which are the criteria by means of which you determine the effectiveness of personnel training?
a) Options: YES
Quantitative criteria (number of resolved matters, appeals, complaints, errors etc.) 1
Qualitative criteria (clients’ satisfaction, increased scope of functional knowledge, performance of more complex tasks etc.)
2
Passed exam or other type of test 3
There are no criteria 4
13. Do you undertake any measures in the case you ascertain that the train-ing has not been effective?
1 YES →13a)2 NO →14
13. a) Please state the measures you undertake? ______________________________________________________
14. How do you use the acquired knowledge?
YES NO
a) lectures/training for the other employees within the state authority 1 2
b) preparation of special written information for the other employees within the state authority 1 2
15. Are there any other ways in which you utilize the acquired knowledge?______________________________________________________________
16. For how long are employees having attended additional training obligated to stay in the state authority after completion of the training programme?
YES NOa) period equivalent to the duration of the training programme 1 2b) twice the period of duration of the training programme 1 2c) other 1 2d) there are no such obligations, as they are not included in the training contracts 1 2
Please, kindly convey us your opinions, proposals and suggestions on these issues! We will consider them with due attention and include them in the final solutions, if possible.
207PARiM-2isanEU-fundedproject,managedbytheEuropeanAgencyforReconstruction
ANNEXES