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乌克兰的公务员人力资源管理改革

Ivanna Ibragimova, Larissa Bezo, Sylvia Pollock1

本文试图描述当前的努力和方法目的是在该国更广泛的和解欧洲公共行政原则的情况下在乌克兰的公务员在人力资源管理改革。它提供了一个最近的经验和教训在公务员人力资源管理改革乌克兰了解到早期的初步反映，以及突出的重点和方向相关的公共部门人力资源管理的未来变化。本文开头内的人力资源管理改革正在开始在乌克兰的公务员背景的简要说明。其次是在公务员人力资源管理改革方面的主要挑战的分析概述。最后，本文列出了在乌克兰的公共部门人力资源管理改革的路线图-专注于优先方面改革.2

一、改革的上下文

乌克兰的公务员队伍是一个相对年轻的体制机制，其起源可以追溯到在1991年出现一个独立的乌克兰国家。尽管其起步阶段的发展和专业化，当代乌克兰的公务员公共行政的传统，在乌克兰出现了九十年前的历史可追溯回。2008年标志着公共行政下Hetman Pavlo Skoropadsky在乌克兰建立90周年。乌克兰的历史经验和传统公共行政-包括当时的行政和政治领域之间的分离-新兴的当代乌克兰公务员承担重要的和相关的经验教训。正在塑造这个官僚机构的演变和受诸多因素的影响-一些历史，如上面提到的那些，如运动，经过几十年的专制统治巩固民主体制，在乌克兰和一些内部的一些外部的，如乌克兰一体化进程与欧洲- 大西洋共同体。

1.1乌克兰公务员的快照

目前，乌克兰的公务员由290765公务员受雇于全职相当于基础上。这个数字包括在执法机构（占公务员总数的百分之四）在当地的国家主管部门（包括占总数的约百分之二十六的公务员）。当代乌克兰的公务员成立以来，一直在公务员总人数的稳步增长-在公务员的总人数超过1998年至2008年期间增加约10％。（专科）可分为公务员管理工作（专科）水平-与受聘的公务员在工作中所占的比例最大，占总劳动人口的百分之74.25％的水平组成。公务员在2008年在乌克兰的营业额率有显着性，有14,206个人进入39726个人离开公务员在同一日历年度。近年来，这种趋势反映了类似的趋势。

人口统计学而言，将近四分之三的公务员由公务员在四十五岁的年龄。总的公务员，75.39％的公务员职位由妇女担任- 主要是在工作（专科）的水平。男女比例转移显着作为一个移动梯子了管理责任。在两名高级经理在民事服务类别的情况下，妇女占12.46％第一类和第二类占23. 96％。

1.2法律和政策框架、

目前的公务员法规定的法律框架内，乌克兰的公务员。它最初是在1993年

通过。通过这一初步的法律服务作为乌克兰当代公务员制度的整体发展的动力。许多重大的变化，在制度层面着手引进这个基本的法律和传球。于1994年，主要部门的公务员Ukraine4（MDCS）成立，并在乌克兰的人力资源管理责任分配的责任。与此同时，在1993年至1996年期间，基本步骤，采取了建立公务员培训系统，包括根据内阁的部长们在1993年（根据总统其后转化成公共管理学院创作研究所乌克兰），再培训和资格在1996年的升级换代，以及起草上说，2004年培训机构的运作和活动的监管，创造中心。MDCS的领土行政单位在2005年，在乌克兰的二十四个州（地区）建立，克里米亚，基辅和塞瓦斯托波尔的城市开始实施人力资源管理政策，在区域一级的公务员。

近年来，响应的有效性和“公务员法以及从外部来源，如经济与合作发展的支持改善治理和管理组织的输入响应的内部评估，在MDCS被领导的对公务员的新法律，使乌克兰与欧洲公共行政原则在公务员更密切地协调发展。这个立法起草涉及整个政府内部和外部利益相关者的发展过程，以及国际捐助者和顾问的意见进行广泛的磋商。法律草案的设想在乌克兰的公共部门之间的行政和政治领域的正式分离，并设置了关键的人力资源管理流程和程序有关雇用和晋升，分类，解雇，干部储备，公务员培训等另外为公务员制定一个新的法律框架，MDCS

也是在制定法律草案，规范领导工作行为有关公务员的行为和道德行为的道德准则。

总体而言，自独立以来，公务员领域内提供政策指导和监管，包括反腐败法“，建立不同的程序和标准，已发出超过四十（40）法律和政策的行为（”规范行为“）人力资源管理。自1998年以来，公务员制度改革已被列入在Ukraine5作为公共行政改革的重要组成部分。在2000年，乌克兰总统颁布了一项关于公务员制度改革的战略（第599号4月14日，2000年），其次是公务员学会适应欧盟标准（号278dated3月5日，2004），在2004年的概念。公务员制度改革，继续作为一个重要的政策改革的重点。最近由乌克兰部长内阁通过的公务员发展计划2005-2010年（第746号，2004年6月8日）。

上文提到的法律和政策的行为，寻求双方建立和支持发展必要的增长和发展的当代乌克兰的公务员，以及变化和未来的发展方向，以确定关键的优先事项的机构。乌克兰境内有广泛的共识，作为公务员制度改革所需的方向。在先生Tymofiy Motrenko的，主管的MDCS的话：“公务员，政治家，专家们认识到需要提高公务员系统在乌克兰。有必要把“公共管理，在乌克兰的血肉-公务员-成为欧洲行政空间的有机组成部分，以及在改善公民生活的重要因素”。

二、改革面临的主要挑战

2.1公务员体制改革

已经取得了显着的进展，在改革现行制度的治理;然而，仍有许多工作有待完成。乌克兰的公务员是尚未完全能够满足国家的需要和本国公民的利益，也没

有充分反映欧洲的原则和标准。公共行政挑战乌克兰的很多，包括需要引入一个更稳定的政治环境，提供更大的宪法明确和稳定的法律框架，以合法的公共机构的作用，加强决策系统，非政治化公务员，所以它的功能，作为一个专业的队伍。

具体来说，因为它涉及到公务员制度，改革努力在乌克兰的官僚体制和业务水平的需要。摆在首位，乌克兰的公务员需要充分本身作为一个专业，择优的官僚机构和政治领域单独建立。其次，公务员必须转变其形象和做法，以作为选择雇主承认在乌克兰的劳动力市场。

在宏观层面，也有作为屏障和威慑为改变在公共行政和公务员制度改革方面的几个关键结构和社会文化的元素。这些主要障碍和威慑可以如下特点： ?公务员范围缺乏清晰-到目前为止，一直没有正式分离之间的政治和行政领域。正因为如此，政治，行政的接口代表一个“灰色”区域限制明确一个专业的，非党派的公务员，可以通过仅优点的基础上任命人员的发展空间。在高层管理水平，是在官僚机构的高级行政人员的作用没有被正式指定的位置。因此，公务员，因为它目前存在的波动，波幅在政治层面上-在政治领导的过渡时间直接影响公务员的核心。此外，作为一个持续波动的结果-大部分企业内存在公务员被有效地侵蚀与各政府和部长的变化。

?公务员的层次和封闭的行政文化存在-本行政文化是一种个人的“管理”与惩罚性措施的重点，集中控制。有限注意的是公务员的成长和职业发展，或在不履约的情况下，经纠正措施。此外，有是有限的努力，在建立相互信任，支持和公开的对话职场文化提出。目前的人力资源管理流程和程序，无法提供在业务层面的积极改进，并在工作场所文化增援。这种情况进一步恶化的公务员申诉的弱电系统。相结合，上文提到的元素提供一点在个别公务员职业发展和观点的激励方式。

?在苏联的命令和控制管理系统遗留下来的-接近管理和决策在乌克兰的治理制度，对系统演化从“指挥和控制的角度名额限制，作为一个有效的和响应战略的持续持久规划和决策的车辆。在SIGMA乌克兰评估（2006）指出，主要集中在公务员的行政命令每日汇报，从不同层次，乌克兰内阁开始级联。这个专案和被动方式向理事不允许为政策决策和实施系统化的方法。有没有清晰的层次结构的概念（政策和战略）文件。缺乏流程和配套的政策和战略文件未能提供政府各部门的公务员与政府的优先事项和重点领域的清晰感。

?主导与立法和制定法律的当务之急-公务员高度集中后，依法决策，并确保符合立法的排斥反应决策的主要。广大公务员努力的重点是根据新的起草，或现有法例重新起草。在这个立法起草之中，正在起草的法律是有限的战略协作。矛盾的法律起草和出台，这并非罕见。立法起草和实施过程中，往往是让不堪重负，新通过的法律，有时，可能甚至没有得到充分的实施设想和/或起草人打算。这主要依靠立法和法律制定后，叶在政策执行层面运作的灵活性和自由

裁量权的空间不大。

?物质存在的缺乏是一些公务员制度改革的实施-对那些已经在过去十年实施的改革，许多新的概念和原则（即透明度，问责性，良好的治理，领导力，绩效，以成果为基础相继出台管理等）将在乌克兰的公共行政修辞。古老的格言“行动比言语更响亮”环在公共部门在乌克兰的真实，在某些情况下，新引进的原则，继续在抽象的层面上存在-没有被翻译成可操作的现实内公务员。在某些情况下，这些原则未能在运作，由于缺乏一个真正意义的理解和影响“的原则和/或缺乏实施的支持（即培训，辅导，咨询支持等公务员）。需要一个一致的和持续的努力，使这些新的原则生活，在公务员的日常的日常业务。

重要的是，任何未来改革的思索和努力，考虑到上文提到的因素和制约因素。

2.2.人力资源管理改革

UCS-人力资源管理项目开发，以支持乌克兰政府的努力，在发展中一个负责任的和透明的公务员，是符合欧洲（西格玛/经合组织）通过中央政府的人力资源管理系统的有针对性的改革规范。该项目的重点是根据上述框架配套实施。乌克兰与有关利益相关者的广泛协商的基础上，在MDCS合作的UCS-人力资源管理项目，在乌克兰的公务员人力资源管理领域中确定了以下主要挑战： ?工作人员（雇用和晋升）-乌克兰的公务员是没有看到在乌克兰市场作为选择雇主，因为它是不是有足够的吸引力，吸引和/或留住合格的候选人-的工资率，就业前景和整体的工作环境。选择应用在评估个别公务员职位的候选人的资格在人手竞赛管理水平，往往不直接挂钩的具体工作要求-而被更广义测试考生的知识，“宪法”或特定乌克兰法律基础或法规。此外，现有的评估技术在雇用和晋升过程中的应用是有限的，在评估候选人的资格无效。此外，招聘目前不采取一致和公平的方式进行。选择职位主要招聘高级最水平往往是高度政治化和主观。雇用实践的透明度和一致性的缺乏削弱了在现行的公务员以及公务员的信心负面影响士气。

?分类-目前，分类决定不上一贯明确的，客观的，定量或标准为基础。尽管预先假设的分类和功能之间的联系，在实践中，现有的立法和规范性文件，是目前公务员的分类和他/她执行或将执行实际功能之间没有联系。分类应用在极其严格的方式限制个人的乌克兰政府机构的能力，以适应不断变化的环境，包括优先事项和目标。法律和法规中的公式，这是用来确定在乌克兰政府机构的公务员职位的类别和队伍离开很少或根本没有具体的政府机构或组织独特需求调

整房间。也不提供满足新类型或个别政府机构内的工作方向变化的需求的手段。在现行制度下，分级决策的基础上固定设置了分层根据啄食顺序（功率级），个别政府机构设置的职务职称。此外，乌克兰的分类系统的培训，绩效考核/评估公务员或事业发展的关系不大。

?补偿-目前，乌克兰的公务员没有一贯被视为首选的雇主。中的一部

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期末论文 院系 专业班级 学号 学生姓名 成绩评定

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大学毕业论文---软件专业外文文献中英文翻译

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