Montenegro

Latest results of the integrity and capacity assessment of the public administration in Montenegro

Podgorica, 21 December 2010

“The results are encouraging as the majority of respondents considered that positive changes took place in the last three years, meaning reduction in the level of corruption and improvement in the quality of public administration services. We would also like to point out the fact that the respondents put corruption in fourth place among the negative phenomena in the work of state bodies, after complicated procedures and poor work organization,” said Ms. Vesna Ratković, Director of the Directorate for Anti-Corruption Initiative of the Government of Montenegro at the opening of a media conference on the occasion of presentation of the results of the survey „Integrity and capacity assessment of the public administration in Montenegro“.

The survey was conducted by the IPSOS Puls agency of Zagreb for the needs of The Directorate for Anti-Corruption Initiative under the Government of Montenegro (DACI) and the UNDP Montenegro, to inform future planning of strategic responses in the field of anti-corruption policy and public administration reform.
 
The survey covered five target groups: citizens, civil servants, NGO representatives, representatives of business sector and public officials in the public administration. The main objective was to identify perceptions of existing capacity and integrity of the institutions of public administration and to define specific recommendations for improvements. The report on survey results has been distributed to all public administration bodies and working groups involved in the public administration reform in Montenegro.

According to the survey, the level of corruption has decreased in the last three years, and the role of government is improved. Respondents commented that complexity of the procedures in provision of services is a larger problem than corruption. The results show the highest quality of work in education, health care and pension systems. However, although citizens appreciate the quality of work of health care workers, they believe that health care is the most corrupted area. It is notable, however, that respondents ranked corruption fourth among negative phenomena in the state administration. Outdated and inefficient services and a lot of paperwork are priority issues to be addressed in order to make the work of the administration more efficient, the survey showed.

Respondents believe that the most important elements in terms of employment and advancement in the administration are family, friends, and political party affiliation. It is important to note, in this regard, that there is a low level of satisfaction of employees in state administration because of low salaries, inadequate working conditions and lack of a merit-based system. The authors strongly suggest a merit-based system be introduced.

Respondents from NGOs consider corruption reduced in public administration and they have a moderate relationship with the state administration, whose employees were mostly available. According to the document, the quality of work in the civil service is improved in the last three years and the effect was increased due a higher number of employees and the introduction of IT systems. Public servants also state that the risk of corruption in procurement has been significantly reduced.

Authors of the study recommended the streamlining of services, establishing of a “one stop shop” system of services, as well as encouraging of service users and government employees to report corruption. Also, they recommended informing the public about the actual criteria of recruitment and promotion in state institutions.

It is proposed to continue raising awareness about corruption, impose stricter penalties, and increase the capacity of functioning of the government institutions, which is seen as anti-corruption measures. It is advisable to cooperate with the media and NGOs in conducting anti-corruption policies and to implement legislation and clearer regulations and procedures.

„One of the preventive activities of the Directorate for Anti-Corruption Initiative is conducting surveys on the extent, forms, causes and mechanisms of corruption. So far, the Directorate has conducted three complex surveys in the areas of judiciary, local government and private sector, as well as several surveys and public opinions on the public familiarity with the Directorate,” said Ms. Vesna Ratković, Director of the Directorate for Anti-Corruption Initiative of the Government of Montenegro. “Our job is not finished by publishing the survey results and recommendations. The Directorate plans to organize meetings with the representatives of state bodies, so as to analyze the specific findings from the survey and suggest activities that would contribute to reducing corruption in certain areas. UNDP Office Montenegro has been our partner in the previous years as well, particularly in the activities concerning surveys and building capacities for combating corruption. I am pleased that the cooperation continues, and the Office continues to support our prevention efforts in the fight against corruption,” also said Ms. Ratković.

„The value of this research is that we got objective, evidence-based, actionable data that we now need to turn into policies, activities, and actions to address the issues identified,” said Kristine Blokhus, UNDP Deputy Resident Representative to Montenegro . „Low efficiency in the state administration hinders progress in many development areas, including the links with civil society, and diminishes public confidence. I would, therefore like to highlight the recommendations aimed at the simplification of service delivery by way of reducing bottlenecks and administrative barriers. Thus, improved administrative capacities are, in a sense, anti-corruption measures: a functional state administration providing efficient service to citizens, will not provide many opportunities for  citizens and business entities to engage in corruption. Linked with this is the need to enhance cooperation with the media and NGOs in achieving greater transparency and common understanding of the challenges in facing Montenegro in the public administration reform and EU accession.

The survey „Integrity and capacity assessment of the public administration in Montenegro“ was carried out through the project “Support to the implementation of National Action Plan to fight corruption and organized crime”, and is another milestone in UNDP’s cooperation with the Directorate for Anti-corruption Initiative. The cooperation aims to identify risks and vulnerabilities at different levels and in selected sectors in the system and proposes remedial actions.

Although the Public Administration Reform Strategy is in its final stage of development, results of this research may provide insight into areas where tailored reform is necessary to improve effectiveness and quality of service. Moreover, it is hoped that this will feed into the process in terms of fine-tuning of the proposed reform activities under AURUM which will contribute to its successful implementation.
For example, a typical issue to be addressed through the public administration reform is something that research points to: Excessive paperwork and administrative requirements, pushing people from pillar to post, complicated procedures and poor organization are the most common problems in the functioning of state administration, and as such confirmed by all target groups. These aspects represent a problem bigger than corruption itself.

Building administrative capacity and reforming the public administration is a key priority in the EU accession, one that was so adamantly stated in the recently published avis on merits of the Montenegrin application for candidacy*: 

Therefore, establishment of a professional, accountable, transparent and merit-based civil service is critical and UNDP remains committed to support the efforts of the Government of Montenegro in this regard through Capacity Development Programme and other programmes. Currently, UNDP is working closely and developing capacities of the Ministry of European Integration, Ministry of Finance, Ministry of Foreign Affairs, Ministry of Health, Ministry of Justice, Ministry of Labor and Social Welfare, Ministry of Spatial Planning and Environment, etc., and there is also a two-year capacity building project which addresses the capacity needs of the Directorate for Anti-corruption Initiative.

In the coming months, another research exercise, looking into the integrity in the health care sector, will be completed.

The objective of the UNDP’s program for the fight against corruption, which is being implemented in partnership with the DACI is to contribute to the effective implementation of anti-corruption initiatives and thereby to improve democratic governance in Montenegro. So far, DACI and UNDP have jointly conducted two surveys on the integrity and capacity in the judiciary and local government.

„Integrity and capacity assessment of the public administration in Montenegro“
„Istraživanje integriteta i kapaciteta institucija državne uprave u Crnoj Gori“

 

*Montenegro needs to Complete essential steps in public administration reform including amendments to the law on general administrative procedure and the law on civil servants and state employees and the strengthening of the Human Resources Management Authority and the State Audit Institution, with a view to enhancing professionalism and de-politicization of public administration and to strengthening a transparent, merit-based approach to appointments and promotions.