natgillin/translations-raw huggingface dataset:
The people in the administration do not get there because of professional criteria and are not promoted according to expertise and performance” (Ured za strategiju razvitka RH, 2001:7).
Ljudi u upravu ne dolaze prema profesionalnim kriterijima i ne napreduju prema stručnosti i uspješnosti” (Ured za strategiju razvitka RH, 2001:7).
According to public opinion research (IDEA, 2003), the biggest problems that Croatia is faced with are: unemployment, corruption and poverty.
Prema istraživanju javnog mišljenja (IDEA, 2003), najveći problemi s kojima je Hrvatska suočena jesu nezaposlenost, korupcija i siromaštvo.
Crime and the legal system occupy the 4th and 5th positions while an inadequate public administration is only in 13th place out of 20.xviii
Zločin i pravni sustav zauzimaju 4. i 5. mjesto, a neadekvatna javna uprava tek je na 13. mjestu (od 20).xviii
Still, it is possible that the kind of knowledge obtained in tertiary level institutions is a greater problem than the qualification structure.
Ipak, moguće je da je vrsta znanja stečenoga u institucijama visokog školstva veći problem od kvalifikacijske strukture zaposlenih.
The system for promotion is both automatic and free, but there is mainly automatic promotion, which lessens individual responsibility.
Sustav napredovanja službenika je kombinirani automatski i slobodan, ali preteže automatsko napredovanje, čime se smanjuje individualna odgovornost.
As in most countries, in Croatia people with university degrees are paid less in the administration than in the private sector (Bađun and Obadić, 2003:18), which reduces motivation and increases the likelihood that the most competent will depart.
Kao u većini zemalja, i u Hrvatskoj su zaposlenici s visokim obrazovanjem lošije plaćeni u javnoj upravi nego u privatnom sektoru (Bađun i Obadić, 2003:18), što smanjuje motiviranost i povećava mogućnost odlaska najboljih.
Although lower wages are partially compensated for with lower stress than that experienced by managers in the private sector, there is a shortage of additional motives to keep educated young people in the public administration.
Iako su niže plaće dijelom kompenzirane manjim stresom od onoga što ga proživljavaju menadžeri zaposleni u privatnom sektoru, nedostaju dodatni motivi koji bi visokoobrazovane mlade ljude zadržali u javnoj upravi.
According to the law, during their employment officials are bound to undergo further professional training, the organisation of which is in the jurisdiction of each body of government.
Prema zakonu, službenici su se za vrijeme trajanja zaposlenja obvezni stručno usavršavati, za organizaciju čega je zaduženo svako državno tijelo.
The institutional framework has thus been established, but the problem is that this did not happen at the beginning of the 1990s and that the implementation of it has not been adequately coordinated among the bodies of the civil service, among which communications are in general not developed enough.
Institucionalni je okvir postavljen, ali problem je što se to nije dogodilo na početku 1990-ih i što provedba nije dovoljno koordinirana u svim tijelima javne uprave, među kojima komunikacija općenito nije dovoljno razvijena.
It would seem that the Ministry for European Integration (MEI) has put much more into the training of employees than the other ministries, but it is worrying that it also has the greatest turnover of employees.
Čini se da Ministarstvo za europske integracije (MEI) ulaže u obrazovanje zaposlenih znatno više nego ostala ministarstva, ali je zabrinjavajuće što ujedno ima i najvišu stopu izmjene zaposlenih.
™ After they have obtained training and experience, young people move to the private sector.
™ Nakon što steknu dodatno obrazovanje i iskustvo, mladi ljudi odlaze u privatni sektor.
The problem of human potentials will be still greater because it is realistic to expect that the best will leave for Brussels, leaving the Croatian public administration with personnel that are not qualified enough.
Problem ljudskih potencijala bit će još veći jer je realno očekivati da će najbolji otići u Bruxelles, ostavljajući hrvatsku javnu upravu s nedovoljno visokostručnog osoblja.
The basic regulation governing the rights, obligations, responsibilities and pay scales in the civil service is the Government Officials and Other Employees Law (NN 27/01).xx The EU did not implicitly require the introduction of this Law.
Temeljni propis kojim se reguliraju prava, obveze, odgovornosti i način utvrđivanja plaća u državnoj službi jest Zakon o državnim službenicima i namještenicima (NN 27/01).xx EU nije implicitno zahtijevao njegovo uvođenje.
The law contains the system for evaluating officials according to the criteria established by the minister in whose jurisdiction lie matters of the general administration.
Zakon sadržava sustav ocjenjivanja službenika po kriterijima što ih propisuje ministar odgovoran za poslove opće uprave.
The rating comes annually and is entered into the “personal record”, grades ranging from unsatisfactory to particularly successful.
Ocjena je godišnja i upisuje se u “osobni očevidnik”, a rangira se od “ne zadovoljava” do “naročito uspješan”.
However, it is somewhat absurd to see that in the law one of the “minor infringements” is “unjustified absence from work of one day” while on the other side little attention is paid to ethics.
Međutim, pomalo je smiješno pročitati u zakonu da je jedna od “lakih povreda dužnosti” “neopravdan izostanak s posla jedan dan”, dok se, suprotno tome, premalo pozornosti pridaje etici.
Similarly, the law says that job vacancies must be advertised in the Croatian Official Gazzette and perhaps in a daily or weekly paper.
Zakon također propisuje da natječaj o slobodnom radnom mjestu mora obvezno biti objavljen u Narodnim novinama, a može i u jednome dnevnom ili tjednom listu.
The Ministry of Justice, Administration and Local SelfGovernment is institutionally responsible for control of the enforcement of the regulations governing the organisation and jurisdiction of the bodies of the government administration, but the impression is given that there is not any adequately developed culture for surveillance and assessment of the public administration at all levels.
Ministarstvo pravosuđa, uprave i lokalne samouprave institucionalno je odgovorno za nadzor provođenja propisa kojima se regulira ustrojstvo i djelokrug tijela državne uprave, ali se stječe dojam da ne postoji dovoljno razvijena kultura nadzora i ocjene javne uprave na svim razinama.
As for organisation, there is clearly too large a number of ministries (19) and there is some overlapping of responsibilities.
U organizaciji je očit prevelik broj ministarstava (19) i poneka preklapanja odgovornosti.
Merging and reviewing of the functions of some of the bodies of the public administration are necessary.
Nužna su spajanja i revidiranje funkcija pojedinačnih tijela javne uprave.
It can be expected that there will be a necessary rise in the share of budget spending for the public administration infrastructure, because of the new obligations related to membership.
Može se očekivati da će porasti izdaci iz proračuna za infrastrukturu javne uprave zbog novih obveza vezanih za članstvo.
In the last few years this happened in Estonia, Latvia and Czech Republic, even in Sweden and Finland before accession.
U posljednjih nekoliko godina to se dogodilo u Estoniji, Latviji i Češkoj, kao i u Švedskoj i Finskoj prije priključenja.
When this is put into the context of the persistent claims that it is necessary to cut government spending, it is clear there will be problems.
Kad se to stavi u kontekst upornog isticanja da je potrebno smanjiti državnu potrošnju, jasno je da će nastati problemi.
One of the main points of vulnerability is the lack of appropriate organisation culture in the public administration and of certain values that ought to be interwoven with it.
Jednom od glavnih točaka ranjivosti čini se nedostatak odgovarajuće organizacijske kulture u javnoj upravi i određenih vrijednosti koje bi trebale biti utkane u nju.
It is very difficult to break up the inheritance of clientelism and paternalism in which the administration has been focussed too much only upon itself.
Vrlo je teško razbiti naslijeđe klijentelizma i paternalizma, u kojemu je javna uprava bila previše fokusirana na sebe samu.
A culture of secrecy has been cultivated, favouring nepotism and arbitrariness, and citizens have always been made to feel subordinate in their encounters with the administration.
Bila je stvarana kultura tajnovitosti koja je pogodovala nepotizmu, korupciji i arbitrarnosti, a građani su se u susretu s državnim službenicima osjećali podređenima.
It is disturbing that even today among the citizens resignation and scepticism prevail to do with any kind of reform relating to the government.
Zabrinjavajuće je to što i danas među građanima prevladava rezignacija i skepticizam kad je riječ o bilo kojoj reformi koja se odnosi na državu.
REFORM OF THE PUBLIC ADMINISTRATION
REFORMA JAVNE UPRAVE
In the European Commission's Second Annual Report about the SAA for 2003, it is stressed that “Croatia ought to pay particular attention to the strengthening of the public administration so that the appropriate ministries and other public bodies should acquire the position for the correct implementation of the many legislative reforms that Croatia has obligated itself to” (MEI, 2003c).
U drugom godišnjem izvješću Europske komisije o stabilizaciji i pridruživanju za 2003. godinu naglašava se da “Hrvatska treba obratiti posebnu pozornost jačanju javne uprave kako bi odgovarajuća ministarstva i druga javna tijela stekla poziciju za ispravnu provedbu brojnih zakonodavnih reformi na koje se Hrvatska obvezala” (MEI, 2003c).
It is also stated that the Government is probably incapable of pushing through reform of the administration since it is largely occupied with internal dissensions.
Također se napominje da Vlada vjerojatno nije sposobna provesti reformu javne uprave jer je uglavnom zaokupljena unutarnjim razmiricama.
Although the Government is aware of the importance of reform, there is no clear short-term plan for its implementation, and there is no strong political will.
Iako je Vlada svjesna nužnosti reforme, nedostaje jasan kratkoročan plan provedbe i jaka politička volja.
Two years have elapsed since the “Public Administration” proposal in the Croatia in the 21st Century project, and the Government has still not adopted it.
Od prijedloga strategije “Javna uprava” iz projekta “Hrvatska u 21. stoljeću” prošle su gotovo dvije godine, a Vlada je još uvijek nije usvojila.
The emphasis is on the raising of the effectiveness of the system, effectiveness being taken to mean social accountability to the citizens (Ured za strategiju razvitka RH, 2001).
Njezin je naglasak na podizanju učinkovitosti sustava, pri čemu se pod učinkovitošću misli na društvenu odgovornost prema građanima (Ured za strategiju razvitka RH, 2001).
In the agenda of the government for the 2000-2004 period, special attention was devoted to the administration: halting expansion,xxii horizontal decentralisation, increased rationality and efficiency (avoiding overlapping), and attaining qualifications for the process of harmonisation with the EU (Vlada RH, 2000).
U programu rada Vlade za razdoblje od 2000. do 2004. posebna je pozornost pridana javnoj upravi: zaustavljanju ekspanzije,xxii horizontalnoj decentralizaciji, povećanju racionalnosti i ekonomičnosti (izbjegavanju preklapanja poslova) te osposobljavanju za proces prilagodbe EU (Vlada RH, 2000).
The sequel describes the experience of selected European countries in the reform of the public administration.xxiii
U nastavku opisujemo iskustva nekih europskih zemalja u reformi javne uprave.xxiii
European Union countries
Zemlje Europske unije
The actual bureaucratic machinery in Brussels itself is not something to aim at, irrespective of the quality of the individuals that work there.
Sam birokratski aparat u Bruxellesu nije nešto u što bi se trebalo ugledati, bez obzira na kvalitetu pojedinaca koji u njemu djeluju.
For this reason it is better to look at individual EU countries.
Stoga je možda bolje promotriti pojedine zemlje EU-a.
Since the 1980s, public administration trends in EU countries have been towards:
Od 1980-ih godina u javnim upravama zemalja EU-a trend je:
• opening up to the public;
• otvaranje prema javnosti
• promotion according to additional criteria, not just seniority;
• napredovanje prema dodatnim kriterijima, a ne samo prema radnom stažu
• transfer of some responsibilities to the public sector;
• prenošenje nekih odgovornosti na privatni sektor
• decentralisation;
• decentralizacija;
• introduction of financial motivation to the system (fees of different amounts according to how long the procedure lasts).
• uvođenje financijske motivacije u sustav (npr. pristojbe različite visine ovisno o trajanju administrativnih postupaka).
Each country has a specific public administration, and we shall mention here only the examples of the UK, Sweden, France and Germany, which are known for their good administrations, and of Spain before the accession.
Svaka zemlja ima specifičnu javnu upravu, a ovdje navodimo primjer Velike Britanije, Švedske, Francuske i Njemačke, koje su poznate po dobroj javnoj upravi, te Španjolske u razdoblju prije pridruženja EU.
The example of the UK best shows that even a 150 year long tradition of public administration does not guarantee immunity to reforms, because they go on all the time.
Na primjeru Velike Britanije najbolje se vidi kako ni 150-godišnja tradicija postojanja državne službe ne jamči imunost na reforme jer one kontinuirano traju.
The change of government in 1997 was a vivid illustration of the way this civil service works.
Promjena vlasti 1997. godine zorno je predočila način na koji funkcionira ta državna služba.
In 24 hours, the ministerial changeover was effected, but those who had previously advised the Conservative government were still doing the same for the Labour government (Behrens, 2002).
U roku 24 sata obavljena je zamjena ministara, a oni koji su dotad blisko savjetovali konzervativnu vladu nastavili su to isto činiti za laburiste (Behrens, 2002).
This shows that there is a fair amount of separation between politicians and civil service in Britain.
To upućuje na priličnu razdvojenost političara i državne službe u Velikoj Britaniji.
The prestige of this public administration is derived from its professionalism, and not from the law about it, while its success is derived also from the powerful civil society that is actively involved in an assessment of its work.
Prestiž te državne službe rezultat je njezina profesionalizma, a ne zakona o njoj, a uspjeh proizlazi i iz jakoga civilnog društva koje je aktivno uključeno u ocjenu njezina rada.
In spite of the civil service in Sweden having a long history of experience in international cooperation, joining the EU was a dramatic change for it (Lindgren, 2002).
Usprkos činjenici da je državna služba u Švedskoj imala dugogodišnje iskustvo u međunarodnoj suradnji, pridruživanje EU bilo je za nju dramatična promjena (Lindgren, 2002).
The basic action of the Swedes on this occasion was to make their civil service every bit as professional as those in other member countries in order to achieve the maximum of benefit for their own country within the EU.
Pritom je temeljni cilj Šveđana bio učiniti svoju državnu službu jednako profesionalnom kao u drugim zemljama članicama tako da mogu ostvariti što veće koristi za vlastitu zemlju unutar EU-a.
On accession, the obligations were 50% greater, and the resources considerably smaller.
S učlanjenjem u EU obveze su se povećale za 50%, a resursi znatno manje.
A specific feature of Sweden is the small size of ministries, since there are semi-independent agencies for the implementation of policy in which the largest number of civil servants are employed.
Specifičnost Švedske su mala ministarstva jer postoje polu-nezavisne agencije za primjenu politike u kojima je zaposlen najveći broj državnih službenika.
Since 1994 (the year before accession) the Forum Europe has been at work; this is a body within the government charged with the professional further training of civil servants.
Od 1994. (godinu dana prije priključenja) djeluje Forum Europa, tijelo koje je unutar Vlade zaduženo za profesionalno usavršavanje državnih službenika.
After World War II, France realised the need for a new and different public administration.
Nakon Drugoga svjetskog rata u Francuskoj se pojavila potreba za novom, drugačijom javnom upravom.
Leading French statesmen realised that a job in the civil service required specific kinds of knowledge, and for this reason in 1945 the Ecole nationale d'administration (ENA) was set up - an educational institute run and controlled by the government (Šimac, 2002:50-60).
Vodeći francuski državnici shvatili su da posao u javnoj upravi zahtijeva specifična znanja te je stoga 1945. osnovana Ecole nationale d'administration (ENA) - učilište pod vodstvom i nadzorom vlade (Šimac, 2002:50-60).
Today ENA is one of the leading tertiary level educations concerning public administration in the world.
ENA je danas jedno od vodećih visokih učilišta javne uprave u svijetu.
Education at ENA lasts about two and a half years and consists of a study part and one year's practical work.xxiv There is an entrance procedure to get into ENA, for which every year from 10 to 20 candidates apply for every place.xxv All the candidates accepted automatically enter the civil service and obtain a corresponding salary (ca 8,000 francs a month).
Školovanje u ENA-i traje oko dvije i pol godine te se sastoji od jednogodišnjega radnog staža (prakse) i studijskog dijela.xxiv U ENA-u se ulazi putem natječaja na koji se svake godine prijavljuje od 10 do 20 kandidata za jedno mjesto.xxv Svi primljeni kandidati automatski postaju državni službenici i dobivaju odgovarajuću plaću (oko 8 000 franaka mjesečno).
During their practical work and study the candidates are constantly being evaluated, and the order is regularly published.
Tijekom staža i studijskog dijela primljeni se kandidati stalno ocjenjuju, a njihov se poredak redovito objavljuje.
This order is essential for their future career, for those at the top of the list have the right to choose the job that the administration is currently offering.
Poredak je bitan za njihovu daljnju karijeru jer polaznici koji su prvi na listi ujedno imaju pravo prvi birati radna mjesta koja im u tom trenutku nudi javna uprava.
It is interesting that President Chirac is himself a former student of ENA.
Zanimljivo je spomenuti da je i francuski predsjednik Jacques Chirac bivši učenik ENA-e.
It is criticised for having become a school of the “snappy and self-satisfied Parisian bourgeoisie” because the share of candidates from well-to-do families comes to about 65% (Šimac, 2003:61).
ENA-i se prigovara da postaje škola “osorne i samodostatne pariške buržoazije” jer udio kandidata iz imućnijih i utjecajnijih obitelji iznosi oko 65% (Šimac, 2002: 61).
Apart from that, the need for inservice training of civil servants is neglected.
Osim toga, zanemaruje se potreba stalne izobrazbe državnih službenika.
The institutionalisation of the administration in Germany goes back to 1794 and the Prussian “general law” (Derlien, 2003).
Institucionalizacija državne službe u Njemačkoj datira još iz 1794. i pruskog “općeg zakona” (Derlien, 2003).
It can be said that in Germany the civil service preceded democracy, which had a permanent effect on the separation of politicians from civil servants.
Može se tvrditi da je u Njemačkoj državna služba prethodila demokraciji, što je imalo trajan utjecaj na odvojenost političara od državnih službenika.
From the beginning of the 20th century, Spain endeavoured to adjust the always insufficiently flexible structure of its public administration to the rapid and sometimes radical changes in its society.
Sve od početka 20. stoljeća Španjolska nastoji prilagoditi uvijek nedovoljno fleksibilnu strukturu svoje javne uprave brzim, katkad i radikalnim promjenama u društvu.
In 1984 (two years before accession) a law concerning the reform of the administration was passed, but it was subject to sharp criticism from the public because of the poor technical performance and problems in the application (Subirats, 1990).
Godine 1984. (dvije godine prije priključenja EU) donesen je zakon o reformi javne uprave, ali je bio podvrgnut oštroj kritici javnosti zbog loše tehničke izvedbe i problema u primjeni (Subirats, 1990).
In 1986 the Ministry for Public Administration was set up, and in 1987 the law concerning the public service was passed.
Godine 1986. osnovano je Ministarstvo za javnu upravu, a 1987. donesen je zakon o državnoj službi.
The basic aim was to change the administration from being that which “regulated life” to one that was subordinate to results and serving the public.
Temeljni je cilj bio promijeniti javnu upravu iz one koja “regulira život” ka onoj podređenoj rezultatima i služenju građanima.
A great gap was felt between the tasks to be done and the old methods of management used in the public administration.
Osjećao se velik jaz između zadataka koji su trebali biti obavljeni i zastarjelih metoda upravljanja korištenih u javnoj upravi.
Particular attention was devoted to human resources - to attracting and retaining qualified personnel; an inspectorate for the services of the public administration was set up, its purpose being to improve its work through constant assessments and evaluation.
Posebna je pozornost bila usmjerena na ljudske resurse - privlačenje i zadržavanje kvalificiranog osoblja, a osnovan je i Inspektorat za usluge javne uprave, čiji je zadatak bio poboljšati njezin rad stalno ga ocjenjujući.
The main barriers to reform were: (1) the impression among the civil servants that this was “just another reform”; (2) resistance of the unions; (3) departure of highly ranked officials for the private sector; (4) shortage of NGOs to demand changes in the public sector; and (5) political instability.
Glavne prepreke reformi bile su (1) dojam među državnim službenicima da je to “još samo jedna reforma”, (2) otpor sindikata, (3) odlazak visokorangiranih državnih službenika u privatni sektor, (4) manjak nevladinih udruga koje bi zahtijevale promjene u javnom sektoru, (5) politička nestabilnost.
The situation with reform of the Spanish administration before accession recalls that in Croatia.
Situacija s reformom španjolske javne uprave prije priključenja donekle podsjeća na onu u Hrvatskoj.
From the example of these countries it can be seen that the process of reform and modernisation of the public administration is an ongoing one, and that it is never simple, even in highly developed countries.
Na primjeru tih zemalja vidi se da proces reforme i modernizacije javne uprave traje kontinuirano i da nigdje nije jednostavan, čak ni u visokorazvijenim zemljama.
Still, however much reform of the administration might seem imperfect, painful and expensive, it is not less ruthless than the methods used in market competition (Pusić, 1999:241).
Ipak, koliko god se reforme javne uprave mogu činiti nesavršenima, bolnima i skupima, one nisu nimalo bezobzirnije od metoda koje se primjenjuju u tržišnoj utakmici (Pusić, 1999:241).
The candidate countries
Zemlje kandidatkinje
In earlier years of the transition of the countries of CEE, the basic method for reform of the public administration was to cut the number of employees and cut wages to achieve fiscal savings (UNDP, 2001:1), without paying much attention to the consequences in terms of quality.
U ranim godinama tranzicije zemalja središnje i istočne Europe temeljni je način reforme javne uprave bilo smanjenje broja zaposlenih i smanjivanje plaća kako bi se postigle fiskalne uštede (UNDP, 2001: 1), pri čemu se nije vodila briga o posljedicama za kvalitetu.
Looking at the results of public administration reforms in these countries, it can be said they are not totally satisfactory, but that some kind of general progress has been made.
Gledajući na rezultate reformi javne uprave u tranzicijskim zemljama, može se reći da nisu potpuno zadovoljavajući, ali da je nekakav opći napredak ipak ostvaren.