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- ЖАС ҒАЛЫМДАР ЗЕРТТЕУЛЕРІ ИССЛЕДОВАНИЯ МОЛОДЫХ УЧЕНЫХ RESEARCHES OF THE YOUNG SCIENTISTS
Umarov Arystanbek Reform of the civil service system. the Republic of Kazakhstan
Reform of the civil service system. the Republic of Kazakhstan
128 Begakhmetov Aslan Master Degree Student, NSPP, Academy of Public Administration Under the President of the Republic of Kazakhstan NEW PARADIGMS OF CIVIL SERVICE: KAZAKHSTAN AND THE UNITED STATES, COMMON ISSUES AND DISTINCTIVE FEATURES Abstract During reforms of civil service in the United States it was focused to make it more transparent and competitive comparing with the private sector. Vice-President Al Gore’s Commission proposed «to create a government that would work better and cost less.» Recent amendments to the Civil Service Law contain provision to create a new class of professional managers – «A» corps, responsible for the implementation of specific public policy tasks. Key words: Civil service, bureaucracy, merit system, administrative civil servants, political civil servants. Аннотация В США при реформировании государственной службы ставилась задача сделать ее более открытой и конкурентоспособной по сравнению с частным сектором. Комиссия вице-президента А. Гора предложила «Создать правительство, которое бы работало лучше и стоило меньше». Закон РК «О внесении изменений и дополнений в некоторые законодательные акты РК по вопросам государственной службы» (2013 г.) содержит новые парадигмы: формирование принципиально нового класса профессиональных управленцев – корпуса «А», ответственного за реализацию конкретных направлений государственной политики. Ключевые слова: Государственная служба, бюрократия, система меритократии, административные государственные служащие, политические государственные служащие. Андатпа АҚШ-да мемлекеттік қызмет жүйесіне реформа жасаған уақытта оны анағұрлым ашық және жеке сектормен салыстырғанда бәсекеге қабілетті болу талап етілді. Вице –президент А. Гордың комиссиясы мынаны ұсынды «Үкіметті құру, жақсы жұмыс істеу білу және құынының төмен болуы». 2013 жылы қабылданған ҚР-ның «Өзгерістер мен толықтырулар енгізіліген Мемлекеттік қызметтің бірқатар сұрақтары бойынша заңды нормативті актілері» Заңы жаңа парадигмаларды құрайды: жаңа кәсіби басқарушы «А» корпусын қалыптастыру, нақты мемлекеттік саясаттың бағытын жүзеге асыратын жауапты тұлға. Тірек сөздер: Мемлекеттік қызмет, бюрократия, меритократии жүйесі, әкімішілік мемлекеттік қызметкерлер, саяси мемлекеттік қызметкерлер. US civil service: specificity The main principle is focus on the «client» – thisfocus is not on only onstate’s interests, but on citizenas on a «client». As we know the U.S. government interferes in private sector less than other country in the world. This kind of approach on a «client» determines the most important factor in American bureaucracy. Civil service out of politics? Leading trend of recent decades is the «repolitizatsion» of administration. Administrative civil servants are interested in supporting institutions that affect their future career, but politicians are considering them as a convenient tool to achieve their political goals.Meanwhile politiciansare more dependent on voters opinions and therefore more sensitive to their needs and wishes. So perfect combination is adequate political «responsiveness» of civil servants, which in practice would mean effective conducting tasks of the elected President. «Transparent» bureaucracy Over the past 20 years American civil service has changed dramatically towards greater democracy and openness to the public. The results of this approach have been unpredictable. The idea of a «transparent»,and accountable civil service certainly became a beneficial for society. Now, a citizen has the right to introduce with a wide range of public documents and with documents concerning his life, to attend meetings of the government agencies and etc. Thus, undermined one of the main sources of bureaucratic power and abuse – «the secretof cabinet».
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129 Senior executives and staff selection USCivil service reformwas focused to make civil service more open and competitive with the private sector. Since 1979 US created senior executives service (SES). Candidate must pass examsfor admission. There is a general list of vacancies in the government organizations. All other questions on the selection, evaluation and decide organizations itself. To do this, they create Executive Resources Board. For admission to SESshould meet some requirements. In case if candidate is applying for the first time commissionexpertise his qualification and managerial skills. For new SES member set one-year probation. Merit System. TraditionallyUS civil service encourages staff mobility. It is considered that this way provides new knowledge and skills, social connections, expanding horizons and opportunities for career growth and personal development, enhanced corporate spirit in the civil service. The basis of merit system is that recruitment and promotion of employees based on their professional and personnel skills. Merit system (civil service reform act 1978) 1) the selection and promotion of employees must be from all social groups, based solely on the abilities, knowledge and skills of the candidates, as a result of fair and open competition; 2) equal treatment to all applicants, regardless of their political views, race, religion, ethnic origin, sex, age, marital status, or disability; 3) equal pay for equal work, providing a good pay for good performance; 4) The employees must conduct high quality of their work, and who can not or does not want to improve their work, should be removed; 5) The employee must be provided with effective education and training; 6) employees should be protected from personal favoritism orforced to do political whim. New Trends Vice-President Al Gore Commission stated to create a government that would work better and cost less. As a result Civil service: – Should be accountable not for the process but for the result; – Should be decentralized personnel policy; – should implement to bureaucracysome aspects of business, in particular the struggle for the client;
– Create a «culture of state business,» etc. New paradigms of Kazakhstan’s civil service Amendments to civil service act came into force in March 2013 declared growth of civil service efficiency on the basisof merit principles, transparency and accountability. In accordance with the President’s message to people of Kazakhstan «Strategy 2050» within civil service will be formed a new class of professional managers – «A»corp, responsible for the implementation of government policy. According to President’s order until 1July a new corp should be selected and formed. «A» corp candidates – will be selected by a commission, and these people will implement the policy of the President. In March 2013 the President of Kazakhstan signed a decree «Special qualification requirements for « A “ Corpscandidates. As a result the amountpoliticians will be reduced by eight times. Only remain the ministers and their deputies andregional governors and their deputies, as well as the mayors of regional centers at the regional level. However, out of 500 persons of “A» corp 250 will be recruited from the regions. Selection to «A» corp will be extremely strict, transparent, and only on the basis of professional and personal competence. Candidate should mandatory know Kazakh, English and Russian languages. English is the medium of advanced knowledge and new technologies. The President of the Republic of Kazakhstan gave a task to regions to attract foreign investment, and the aim of governors – to create a favorable investment climate in their regions and reduce existing administrative barriers,all this requires knowledge of the English language. The reform increases the chance to ensure that the most deserving young men will be promoted in the civil service. Motives for admission are determined by several factors. First, the civil service is perceived by many young people as a special honor and public trust. Second, civil service attracts Begakhmetov Aslan New paradigms of civil service: Kazakhstan and the United States, common issues and distinctive features
130 by its stability, especially after the economic crises. Third, if the young men will see that the selection transparent, merit-based, it lays additional incentives for those who consider themselves talented. The law will put an end to the popular practice of «team moves», increases the responsibility of government agencies heads for making personnel decisions. Also implemented institutions of mentoring, career planning and job rotation. For professional training of civil servants will be provided internship.Candidate testing will be carried out without binding to the competitive selection of a particular state agency. Testing will be periodically announced by the Agency for Civil Service and its territorial divisions. According to the results will be issued a certificate that will give the right to participate in the competition. As a result, the time of selection procedures will be reduced by 3 times, up to 15
20 days.
Experience will be taken into account as you progress through civil service. According to the statistics, we have over 90 thousand civil servants equally represented in all ages. From 20 to 30 – about 22
23%, from 30 to 40 years – 28-30%, from 40 to 50 – and also 22 – 23% over 50. The average experience is just over 10 years. Therefore, Kazakhstan’s civil service is a combination of experience and youth. There will be provided social elevator. The man who has no experience incivil service can be a Governor of the city / region, if he has at least 5 years of total experience, of which at least 4 years in executive positions in the private sector. The Academy of Public Administration under the President of the Republic of Kazakhstan is the most important institution for training of civil servants. To improve the competitiveness of the Academy of Public Administration is expected to develop the competence «A» corp civil servants through training in NSPP. Resume. The formation of the system is supposed to work with talented and prospective employees, as well as students who want to become in the future civil servants.
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131 Lastayev Talgat Master Degree Student, NSPP, Academy of Public Administration Under the President of the Republic of Kazakhstan LOCAL GOVERNANCE: INTERNATIONAL EXPERIENCE AND KAZAKHSTAN
In the modern world, the welfare of the state is determined by the effective use of the ability of citizens. That’s why most of the developed countries are striving to improve the models of local self- government. The given level of government closest to the population, formed by population, it is under control of population and resolves issues to address basic needs of population. Rational construction of the local government allows not only spent best of local resources, but also significantly increases public confidence in the government. At the current stage of development of our country President of Kazakhstan N. Nazarbayev set exactly this kind task in front of the Government. In November 2012, in accordance with his decree was adopted the Concept of development of local self-government in the Republic of Kazakhstan. Moreover, in accordance with the decision of the Head of the State in the current year in Kazakhstan will be introduced election of local councils (akim). In total, will be elected 2533 councils (akim), including the councils of rural districts, towns and also 50 councils in the town at the district level. These resolutions are based on the study of best international practices in the area of local self- government. The values of democracy and the municipal government, enshrined by the European Charter of Local Self-Government are become a theoretical base for the constitutional and legal regulation of local municipal governments. Currently, most often in academic literature is common the well-known classification of models of the organization of local authorities, which is based on the relationships between local government and central authorities. According to this approach, there are four basic models of local government: the Anglo-Saxon, Continental, mixed and Soviet. The Anglo-Saxon (classical) model became popular mainly in the countries like: UK, USA, Canada, India, Australia, New Zealand, etc.
I would like to highlight the United States of America in more details, as we go through the training in this state. The statehood building in the United States came from the need to ensure existence of the decentralized power. The federalism was elected as one of the methods of decentralization. The subjects of the federation are 50 states. States are public formations. They all are equal; they do not have national sovereignty and e right to secede from the U.S. They adopt own constitutions, and none of the current constitutions do not have any significant similarities with the federal Constitution. The system of local government and administration of the states is based on the administrative- territorial division, and the last one falls within the competence of the states. Therefore, the systems of local self-government in different states are different. Most states are divided into counties. In total, in U.S. are more than 3 thousand counties. Their population elects the county councils and other officials – the sheriff in charge of public order, the public prosecutor or the Attorney – a representative of the state, treasurer, etc. Council decides mainly the local budget, determines the development program. Cities are allocated from the county and have its own system of government. In the U.S., there are three systems of municipal government. In most cities, a «council – manager» system is used. Population elects council, which elects the mayor, but the mayor chairs in the council only and is not engaged in management activity. Management is carried out by specially hired contractor– official manager.
Counties are divided into Towns and townships. In small administrative territorial units the residents meetings are held, which are dealing with common issues and electing an Executive Committee (Board of 3-5 people).
Local Governance: International Experience and Kazakhstan
132 Local government plays a big role in the U.S. In its agencies serve more than half of the administrative employees, the revenue of municipal budgets in approximately equals to 40% of the federal budget, even though the local budgets are benefit from the taxes from articles that provide small revenue. During our study at Duke University, we visited many organizational divisions of the local government of North Carolina, Wake County, Raleigh and Durham. For example: the mayor office, the sheriff’s office, treasurer, auditor, rescue mission, and many other services. This has helped us to form a genuine understanding of the work of local authorities in the United States. Continental model of local power organization significantly differs from the Anglo-Saxon model, which is not only found in continental Europe(France, Italy, Spain, Belgium), but also in many countries of Latin America and Middle East. The features of this model are: combination of local government and public administration in the field of election and appointment, a certain hierarchy of the system of local self-government divisions, lower entities are subordinate to the higher, presents of special representative of the central government at the local level, who authorized to exercise state control over the activities of local governments. Along with discussed models, there are options for local authorities, which are to some extent incorporated the features of each of them and have their own specific features. These models are called mixed. These models include the local government in Germany, Austria, Japan, some post- socialist and developing countries. So-called Soviet model of power organization is fundamentally different from the above mentioned models. It takes place only in a few countries, which still retain a socialist orientation (China, Cuba, North Korea), and in some states formed from the former Soviet Union (Belarus, Uzbekistan). The main features of this model are: autocracy of the representative entities from top to bottom, rigid centralization of the system of representative and executive entities, the hierarchical subordination of all its components, absence of municipal ownership, local budgets. The closest to Kazakhstan is an experience of decentralization of public administration and development of the system of local government in the countries of Central and Eastern Europe, due to the fact that these countries also had to reform the old system of local councils, which were the foundation of the system of local governance in all countries of post-socialist space. From the perspective of tasks, which are in front of Kazakhstan in terms of further improving its system of local self-government, it is important creatively use all this experience. We should not just copy system of local self-government of a the States, it is important to analyze the international experience in the complex and select the most appropriate components for Kazakhstan, which should be later introduced into the national system of local self-government in accordance with national, regional, and political characteristics of our country
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